LIBRARY 

UNIV!-R5ITY  OF 

CALIFORNIA 

IRVINE 


D7 


JOHNS  HOPKINS  UNIVERSITY  STUDIES 

IN 

HISTORICAL  AND  POLITICAL  SCIENCE 

Under  the  Direction  of  the 

Departments  of  History,  Political  Economy,  and 
Political  Science 


VOLUME  XXXIV 


BALTIMORE 

THE  JOHNS  HOPKINS  PRESS 
1916 


COPYRIGHT  1916  BY 
THE  JOHNS  HOPKINS  PRESS 


PRESS  OF 

THE  NEW  ERA  PRINTING  COMPANY 
LANCASTER.  PA. 


VOLUME  INDEX 


N.  B.  Volume  XXXIV  is  complete  in  four  numbers.  A  volume 
index  has  not  been  made  for  this  volume,  as  each  study  is  separately 
indexed.  The  plan  of  indexing  the  numbers  separately  and  omitting 
the  volume  index  will  be  followed  in  succeeding  volumes. 


CONTENTS 

PACT 

I.  THE  BOYCOTT  IN  AMERICAN  TRADE  UNIONS.    By  L.  Wolman      i 
II.  THE  POSTAL  POWER  OF  CONGRESS:  A  STUDY  IN  CONSTITU- 
TIONAL EXPANSION.    By  L.  Rogers  149 

III.  THE  CONTROL  OF  STRIKES  IN  AMERICAN  TRADE  UNIONS.    By 

G.  M.  Janes  339 

IV.  STATE  ADMINISTRATION  IN  MARYLAND.    By  J.  L.  Donaldson  471 


STATE  ADMINISTRATION  IN  MARYLAND 


SERIES  XXXIV  NO.  4 

JOHNS  HOPKINS  UNIVERSITY  STUDIES 

IN 

HISTORICAL  AND  POLITICAL  SCIENCE 

Under  the  Direction  of  the 

Departments  of  History,  Political  Economy,  and 
Political  Science 


STATE  ADMINISTRATION  IN 
MARYLAND 


BY 


JOHN  L.  DONALDSON,  Ph.D. 
Professor  of  History  and  Economics  in  Roanoke  College 


BALTIMORE 
THE  JOHNS   HOPKINS  PRESS| 

1916 


COPYRIGHT  1916  BY 
THE  JOHNS  HOPKINS  PRESS 


PRESS  OF 

THI  NEW  ERA  PRINTING  COMPANY 
LANCASTER.  PA. 


CONTENTS 

PACK 

PREFACE    ix 

INTRODUCTION  n 

CHAPTER  I.    PUBLIC  EDUCATION  14 

ELEMENTARY  EDUCATION  14 

State  Board  of  Education  14 

State  Superintendent  of  Education  15 

County  School  Commissioners   16 

County  Superintendent   17 

District  School  Trustees    18 

Teachers   19 

School  Attendance   20 

Baltimore  City  21 

Colored  Schools  22 

Criticism   22 

SECONDARY  EDUCATION  24 

High  Schools   24 

Industrial  Schools  25 

State  Normal  Schools  26 

Other  Schools  27 

Criticism 28 

HIGHER  EDUCATION  29 

The  Maryland  Agricultural  College  31 

The  Johns  Hopkins  University 31 

Proposed  State  University 32 

DEAF,  DUMB,  AND  BLIND 33 

FARMERS'  INSTITUTES  33 

PUBLIC  LIBRARIES  34 

Maryland  Public  Library  Commission  34 

State  Library 35 

EDUCATIONAL  FINANCE 36 

SUMMARY  39 

CHAPTER  II.    PUBLIC  HEALTH 41 

LICENSING  BOARDS  41 

VACCINATION    42 

STATE  DEPARTMENT  OF  HEALTH  42 

The  Secretary 43 

Bureau  of  Vital  Statistics  45 

Bureau  of  Communicable  Diseases   46 

v 


VI  CONTENTS  [4/6 

Bureau  of  Bacteriology 47 

Bureau  of  Chemistry  47 

Bureau  of  Sanitary  Engineering 47 

LOCAL  BOARDS  AND  GENERAL  HEALTH  PROVISIONS 48 

INFECTIOUS  DISEASES   49 

Tuberculosis    51 

MIDWIFERY   52 

PURE  FOOD  AND  DRUGS  53 

State  Food  and  Drugs  Commissioner  53 

CRITICISM    54 

U.  S.  HEALTH  DEPARTMENT  REVIEW  57 

CHAPTER  III.    CHARITIES  AND  CORRECTIONS  59 

CHARITIES  59 

Almshouses  and  Trustees  of  the  Poor  59 

Board  of  State  Aid  and  Charities  60 

Organization  of  the  New  Board  61 

Principles  on  which  State  Aid  Should  be  Given 62 

State  Aided  Institutions  under  the  Supervision  of  the 

Board   63 

New  Legislation  Proposed  by  the  Board 68 

THE  INSANE  69 

Lunacy  Commission   72 

Insane  Hospitals   74 

CORRECTIONS  75 

Reformatories    75 

The  House  of  Correction 76 

The  Maryland  Penitentiary  76 

Criticism  77 

CHAPTER  IV.    FINANCE 80 

PUBLIC  WORKS  83 

INVESTMENTS  AND  DEBT 86 

Counties    86 

The  State  87 

TAXATION  89 

Machinery  of  Taxation  89 

Rules  of  Taxation 91 

State  Tax  Commissioner   91 

STATE  AUDITOR  93 

BANKING  DEPARTMENT  :  BANK  COMMISSIONER 94 

INSURANCE  COMMISSIONER   95 

REVIEW  OF  CONDITIONS  AND  NEEDS  96 

Suggested  Economies  in  Administration  100 

Taxes   102 

SUMMARY  105 


4/7]  CONTENTS  vii 

CHAPTER  V.    GENERAL  ECONOMIC  WELFARE 106 

THE  PUBLIC  SERVICE  COMMISSION  OF  MARYLAND 106 

STATE  FIRE  MARSHAL no 

LICENSES  in 

STATE  BOARD  OF  LAW  EXAMINERS 112 

LAND  OFFICE  112 

ROADS  113 

STATE  SIDEPATH  COMMISSIONERS  117 

COMMISSIONER  OF  MOTOR  VEHICLES  117 

NATURAL  RESOURCES  119 

Game   119 

Fish  and  Oysters  120 

Commissioners  of  Fisheries  120 

Oysters    121 

Agriculture  126 

Geological  Survey  136 

Forestry    138 

State  Conservation  Bureau   i 140 

BUREAU  OF  IMMIGRATION  141 

INDUSTRIAL  BUREAU   143 

Statistics 143 

Employment  Agency   143 

Arbitration  of  Labor  Disputes  144 

Supervision  of  Child  Labor  144 

STATE  WHARFINGER   146 

WEIGHTS  AND  MEASURES  146 

STATE  WEATHER  SERVICE  146 

STATE  MANUAL 147 

CONCLUSION   147 


PREFACE 

This  monograph  is  a  study  of  administration  in  Mary- 
land, and  is  in  no  sense  a  history.  Only  in  certain  cases, 
where  it  was  deemed  necessary,  has  the  historical  develop- 
ment of  a  function  been  traced.  Nor  is  it  a  story  of  admin- 
istrative politics  in  Maryland.  It  deals  exclusively  with  the 
organization  and  the  interrelations  of  the  administrative 
departments  of  the  Maryland  government,  and  attempts  a 
scientific  analysis  of  their  functions  and  forms. 

It  is  perhaps  unnecessary  to  point  out  that  this  study 
treats  of  state  administration,  and,  except  where  the  two 
fields  are  organically  interwoven,  excludes  from  considera- 
tion county  and  Baltimore  City  administration.  Police  ad- 
ministration has  not  been  considered.  In  the  counties  it  is 
insignificant,  and,  while  the  Baltimore  City  police  commis- 
sioners are  state  officers,  their  work  is  largely  a  matter  of 
local  concern. 

Frequent  reference  has  been  made  to  the  "  Code  1912." 
By  this  is  meant  the  "Annotated  Code  of  Maryland"  by 
George  P.  Bagby,  of  the  Baltimore  Bar,  which  includes  the 
laws  of  1910,  was  printed  in  1911,  and  is  known  under  the 
date  of  1912.  In  a  few  places  reference  is  also  made  to  a 
"  Code  1904,"  which  is  a  similar  codification  known  as 
"Poe's  Code."  The  regular  annual  reports  of  the  various 
administrative  departments  have  also  been  used.  When 
other  specific  reference  is  not  given,  these  reports,  or  a 
summary  of  them  in  the  governor's  reports,  will  be  found  in 
the  biennial  "  Maryland  House  and  Senate  Documents." 

It  is  regretted  that  this  study  does  not  include  the  pro- 
visions of  the  laws  passed  by  the  1914  legislature.  It  was 
brought  to  a  conclusion  while  the  session  was  still  in 
progress.  When  possible,  pending  legislative  proposals  have 
been  discussed.  The  delay  in  the  publication  of  the  study, 


X  PREFACE  [480 

which  the  author  was  unable  to  avoid,  has  possibly  rendered 
inapplicable  to  present  conditions  certain  discussions  and 
observations. 

In  concluding  this  preface,  appreciation  is  expressed  of 
the  wise  guidance  of  Professor  W.  W.  Willoughby.  Ac- 
knowledgment is  also  made  of  the  author's  indebtedness  to 
Dr.  Horace  E.  Flack  and  Dr.  Bernard  C.  Steiner  for  their 
kind  advice,  and  to  numerous  state  officials  for  their  courtesy 
in  giving  information,  especially  to  the  Honorable  Charles 
J.  Bonaparte,  Dr.  John  S.  Fulton,  Dr.  Frederic  V.  Beitler, 
Mr.  B.  K.  Purdum,  and  Mr.  William  H.  Davenport. 

J.  L.  D 


STATE  ADMINISTRATION   IN  MARYLAND 


INTRODUCTION 

This  study  does  not  attempt  to  describe  the  entire  govern- 
mental structure  of  the  State  of  Maryland.  Its  scope  is 
limited  to  an  account  of  that  part  of  the  executive  branch 
which  has  to  do  with  the  actual  performance  of  duties  re- 
lating directly  to  the  economic,  intellectual,  and  moral  wel- 
fare of  the  people.  In  very  considerable  measure,  there- 
fore, we  shall  have  to  deal  with  those  functions  which  in 
general  terms  may  be  spoken  of  as  the  police  powers  of  the 
State,— those  powers  which  have  been  denned  by  the  Su- 
preme Court  of  the  United  States  as  authorizing  executives 
"to  prescribe  regulations  to  promote  the  health,  peace, 
morals,  education,  and  good  order  of  the  people"  and  "to 
increase  the  industries  of  the  state,  develop  its  resources, 
and  add  to  its  wealth  and  prosperity." 

As  an  introduction  to  the  performance  of  the  task  thus 
outlined,  it  will  be  necessary  to  refer  to  the  powers  of  the 
governor.  Generally  speaking,  the  governor  of  Maryland 
is  given  control  of  administrative  matters,  and  he  appoints 
a  great  majority  of  administrative  boards  and  chief  officers, 
although  no  rule  has  been  followed  in  this  regard.  There 
are  a  few  rather  important  boards  over  which  he  has  no 
control  whatever;  for  instance,  the  licensing  of  physicians 
is  put  in  the  hands  of  boards  chosen  by  the  respective  medical 
societies  of  the  state.  Aside  from  several  boards  of  this 
kind,  which  for  the  most  part  deal  with  technical  or  scien- 
tific matters,  he  has  almost  complete  appointive  power.  The 
extent  of  this  appointive  power  varies.  In  some  cases  the 
appointment  must  be  made  "by  and  with  the  advice  and 

ii 


12  INTRODUCTION  [482 

consent  of  the  Senate;"  usually  this  is  the  case  when  the 
office  is  a  highly  important  one.  It  may  be  said  that  the 
power  of  removal  accompanies  the  power  to  appoint ;  some- 
times hearing  must  be  given,  in  other  cases  not.  Practically 
all  of  the  administrative  departments  report  to  the  governor, 
who  transmits  these  reports  to  the  legislature.  Several  of 
the  most  important  boards  to  which  the  governor  appoints 
members  are  the  State  Board  of  Education,  the  State  Board 
of  Health,  the  Lunacy  Commission,  and  the  Board  of  State 
Aid  and  Charities ;  he  will  probably  also  soon  have  the  ap- 
pointment of  members  of  the  Penal  Board.  It  is  interest- 
ing to  note  that  the  governor  appoints,  in  addition,  almost  all 
the  minor  administrative  boards  and  many  state  hospital 
and  similar  boards,  of  some  of  which  he  is  himself  a  mem- 
ber. At  every  session  of  the  General  Assembly  the  gover- 
nor must  make  a  report  to  that  body,  reviewing  the  admin- 
istrative work  of  the  two  previous  years,  and  making  recom- 
mendations. 

There  are  a  number  of  boards  of  which  the  governor  is 
an  ex  officio  member,  often  along  with  other  state  officers, 
such  as  the  treasurer  and  the  comptroller.  For  the  most 
part,  his  influence  and  activity  in  the  work  of  such  boards 
are  not  great,  although  a  very  energetic  governor  might 
develop  his  power  considerably  through  this  means.  There 
is  one  board,  however,  in  the  transactions  of  which  the 
governor  is  a  very  important  figure,  namely,  the  Board  of 
Public  Works.  This  may  be  due  to  some  extent  to  the 
small  number  of  members  on  the  board.  In  this  case  the 
governor  is  much  more  than  a  central,  supervisory  officer; 
he  actually  steps  down  into  the  field  of  state  finance,  and 
with  the  other  two  members  of  the  board — the  treasurer 
and  the  comptroller  of  the  treasury — carries  on  the  financial 
activities  of  government,  approving  bonds  and  depositories 
for  state  money,  making  bond  issues  after  legislative  author- 
ization, and  generally  exercising  decisive  influence  in  form- 
ing the  financial  policy  of  the  government  and  in  putting 
it  into  practice.  The  Board  of  Public  Works  also  has 


483]  INTRODUCTION  13 

several  other  functions,  such  as  the  supervision  of  the  State 
Fishery  Force. 

Again,  the  governor  has  a  number  of  important  miscel- 
laneous duties,  such  as  the  approving  of  bonds  given  by 
state  officers,  the  signing  of  land  patents,  the  quarantining 
of  vessels,  and  so  on.  Finally,  he  has  the  veto  power, 
which,  although  legislative  in  character,  affects  very  ma- 
terially administrative  matters. 

Thus  it  is  seen  that  the  governor  of  Maryland  has  con- 
siderable control  over  the  entire  field  of  administration.  In 
spite  of  this  fact,  his  leadership  in  administration  has  never 
seemed  of  much  effect ;  whether  this  is  due  to  lack  of  energy, 
to  lack  of  correlation  among  the  departments,  or  to  some 
other  cause,  it  is  difficult  to  say.  Probably  if  a  more  direct 
power,  or  rather  duty,  of  supervision  were  added  to  his 
power  of  appointment  and  removal,  his  office  would  increase 
in  administrative  importance  and  influence. 


CHAPTER   I 
PUBLIC  EDUCATION 

Public  education  in  any  section  of  Maryland  other  than 
Baltimore  City  is  under  the  supervision  of  three  different 
boards:1  (i)  the  boards  of  district  school  trustees,  with 
supervision  of  district  matters ;  (2)  the  county  school  com- 
missioners, with  jurisdiction  over  the  counties;  (3)  the  State 
Board  of  Education,  with  general  supervisory  powers  over 
the  State. 

ELEMENTARY  EDUCATION 

State  Board  of  Education. — The  governor  by  and  with  the 
advice  and  consent  of  the  Senate,  if  it  is  in  session,  appoints 
six  members  of  the  State  Board  of  Education,2  for  terms 
of  six  years.  Two  terms  expire  every  two  years.  At  least 
two  of  these  members  must  be  of  the  minority  party,  de- 
termined by  the  last  gubernatorial  election;  the  governor 
appoints  to  vacancies.  These  six,  with  the  governor  and 
the  state  superintendent  of  education,  constitute  the  State 
Board  of  Education.  Principals  of  normal  schools  and  of 
normal  departments  of  any  school  or  college  under  the 
control  of  the  board  whose  certificates  are  recognized  by  it 
are  ex  officio  members  of  the  board,  but  have  no  vote. 

The  office  of  the  board  is  in  Annapolis.  The  members 
receive  no  salary,  but  are  reimbursed  for  actual  expenses 
and  may  employ  clerical  assistance.  The  board  is  charged 
with  carrying  out  the  public  education  laws  of  the  State  and 
with  enacting  by-laws  for  the  administration  of  the  public 

1  G.  P.  Bagby,  Annotated  Code  of  Maryland,  art.  Ixxvii,  sec.  I  fif. 
Cited  as  Code  1912. 

2  Ibid.,  sec.  5  ff . 


485]  PUBLIC   EDUCATION  15 

school  system,  "which,  when  enacted  and  published,  shall 
have  the  force  of  law;"  they  may  remove  or  suspend  for 
cause  (that  is,  inefficiency  or  moral  delinquency)  any  county 
superintendent ;  and  they  are  given  the  power  of  "  explain- 
ing the  true  intent  and  meaning"  of  the  education  laws 
and  of  "  deciding,  without  expense  to  the  parties  concerned, 
all  controversies  and  disputes  "  that  arise  under  them,  and 
"their  decision  shall  be  final."3  Thus  they  exercise,  to  an 
extent,  all  three  governmental  powers, — legislative,  execu- 
tive, and  judicial.  They  act  as  assistants  and  advisors  of 
the  various  county  boards,  and  their  advice  is  binding.  They 
issue  circular  letters  from  time  to  time,  to  teachers  and  com- 
missioners, on  topics  connected  with  the  administration  of 
public  schools.  When  requested  by  a  county  board,  they 
examine  candidates  for  the  office  of  county  examiner  and 
issue  certificates.  They  are  ex  officio  trustees  of  state 
normal  schools.  All  schools  and  colleges  and  all  normal 
school  departments  receiving  state  aid  are  required  to  report 
to  the  board  in  September ;  and  these  reports,  or  abstracts 
of  them,  are  published  in  an  annual  report  which  is  made  to 
the  governor,  and  which  includes  a  statement  of  the  appor- 
tionment of  money  to  the  counties  and  Baltimore  City, 
together  with  suggestions  for  the  improvement  of  schools 
and  the  "  advancement  of  public  education."4 

State  Superintendent  of  Education. — The  governor,  by 
and  with  the  advice  and  consent  of  the  Senate,  appoints  for 
a  term  of  four  years  the  state  superintendent  of  education,5 

3  This  confers  a  comprehensive  visitorial  power  upon  the  state 
board  which  is  summary  and  exclusive,  and  where  such  power  is 
sufficiently  comprehensive  the  courts  will  not  interfere   (Wiley  v. 
School  Commissioners,  51  Md.  405;   Shober  v.  Cochrane,  53  Md. 
549).    While  in  matters  involving  the  proper  administration  of  the 
public  school  system  the  courts  will  not  interfere  with  the  jurisdic- 
tion of  the  state  board,  such  is  not  the  case  if  the  determination  of 
purely  legal  questions  is  involved.    In  the  latter  case  remedy  may 
be  had  by  mandamus  (Duer  v.  Dashiell,  91  Md.  669;  Underwood  v. 
School  Commissioners,  103  Md.  189).    The  state  board  has  power 
to  advise  the  county  board,  and  it  is  the  duty  of  the  latter  to  act 
accordingly.    The  legislature  has  a  right  to  confer  upon  the  state 
board  the  power  mentioned  in  this  section   (Underwood  v.  School 
Commissioners,  103  Md.  188). 

4  Code  1912,  art.  Ixxvii,  sec.  90  ff. 

5  Ibid.,  sec.  18. 


l6  STATE   ADMINISTRATION    IN    MARYLAND  [486 

and  may  remove  him  for  cause,  after  submitting  charges  in 
writing  to  him  and  receiving  the  ratification  of  two  thirds 
of  the  members  of  the  state  board.  The  salary  of  the  super- 
intendent is  fixed  by  the  board,  at  not  over  $3000  per  year 
and  travelling  expenses. 

The  duties  of  the  state  superintendent  are  to  examine  the 
county  boards'  statements  of  expenditures  of  school  funds, 
and  to  submit  his  judgment  on  them;  at  his  discretion  to 
endorse  normal  school  diplomas  from  other  States,  which, 
when  endorsed  by  him,  are  legal  certificates  to  teach  in  any 
elementary  public  schools  in  Maryland,  until  revoked;  to 
arrange  dates  for  teachers'  institutes,  to  assist  county  super- 
intendents in  the  preparation  of  programmes  for  county 
teachers'  institutes,  to  attend  these  when  possible,  and  to 
give  instruction;  to  diffuse  information  as  to  the  best 
methods  of  instruction;  to  inform  himself  and  the  state 
board  as  to  the  condition  of  schools  throughout  the  State; 
in  every  way  "to  conserve  the  interests  and  promote  the 
efficiency  of  the  public  schools  of  Maryland." 

County  School  Commissioners.6 — In  six  of  the  counties 
there  are  six  county  school  commissioners,7  in  the  remainder, 
three,  all  of  whom  are  appointed  by  the  governor,  by  and 
with  the  advice  and  consent  of  the  Senate,  for  various 
specified  terms,  and  always  with  a  provision  for  "  minority 
party  representation."  The  governor  may  remove  for 
cause,  after  giving  an  opportunity  for  presenting  and  hear- 
ing charges,  and  he  appoints  to  vacancies.  The  salary  of 
each  commissioner  is  $100  a  year.  The  county  commis- 
sioners are  to  receive  and  hold  in  trust  all  gifts  for  educa- 
tional purposes,  and  to  execute  these  trusts;  the  state's  at- 
torneys are  charged  with  seeing  that  they  are  carried  out. 
The  commissioners  select  sites  for  schools  and  may  receive 
donations  of  or  may  purchase  sites  and  buildings.  They 
may,  if  necessary,  acquire  an  acre  or  less  by  write  of  ad  quod 

6  Code  1912,  art.  Ixxvii,  sec.  6,  sec.  22  ff. 

7  Baltimore,   Carroll,   Frederick,  Dorchester,  Washington,   Mont- 
gomery. 


487]  PUBLIC   EDUCATION  I/ 

damnum;  and  they  issue  plans  for  building  and  furnishing 
school-houses.8 

Text-books,  which  are  free  to  pupils,  are  purchased  by  the 
county  boards.  Since  1908  the  annual  appropriation  for  the 
purchase  of  text-books  has  been  $150,000,  distributed  to  the 
county  boards  pro  rata  to  the  number  of  pupils  enrolled. 
The  Baltimore  City  system  is  not  under  the  supervision  of 
the  State  in  a  direct  way,  as  it  merely  reports  on  conditions 
to  the  state  board  and  is  otherwise  independent,  yet  it  re- 
ceives its  proportion  of  this  text-book  appropriation.9 

County  Superintendent. — The  Board  of  County  School 
Commissioners  elects  as  county  superintendent  of  education 
a  non-member,  who  also  acts  as  secretary  and  treasurer  to 
the  board.  The  county  superintendent  has  general  super- 
vision and  control  of  all  schools  in  his  county ;  he  builds,  re- 
pairs, and  furnishes  school-houses,  and  buys  books;  with 
the  advice  of  the  principal,  he  appoints  assistant  teachers. 
He  may  consolidate  schools  when  he  deems  it  expedient, 
and  may  provide  for  transportation  to  and  from  schools. 
In  counties  with  more  than  eighty-five  schools  the  board  may 
appoint  a  clerk,  and  may  fix  his  salary. 

If  the  proportion  of  the  state  school  tax  and  the  free 
school  fund  for  any  county  should  prove  inadequate,  the 
commissioners  of  the  county  may  designate  a  tax  on  assess- 
able property  in  the  county,  to  be  collected  under  direction 
of  the  county  commissioners,  of  not  over  fifteen  cents  on 
$100,  unless  the  county  commissioners  approve  an  additional 
tax.  The  school  commissioners  may  make  or  revise  bound- 
aries of  school  districts.  A  majority  may  remove  a  mem- 
ber, and  appeal  lies  to  the  state  board.  Each  county  board 
must  report  in  September  to  the  state  board,  and  in  Novem- 
ber must  publish  a  financial  report  and  send  a  copy  of  it  to 
the  state  board.  By  act  of  I9I210  the  reports  from  the 
counties  and  from  Baltimore  City  were  made  uniform. 

8  Code  1912,  art.  Ixxvii,  sec.  37  ff. 
<>  Ibid.,  sec.  68  ff. 
10  Laws  1912,  ch.  333. 
2 


1 8  STATE   ADMINISTRATION    IN    MARYLAND  [488 

An  act  passed  in  1894"  dealing  with  school  sanitation 
provides  that  if  the  commissioners  of  a  county  or  city  do 
not  fulfill  their  duties  with  regard  to  this  matter,  they  may 
be  removed  by  a  court  of  competent  jurisdiction  on  com- 
plaint of  five  citizens.  This  provision  is,  perhaps,  not 
carried  out,  but  the  idea  is  good,  considering  the  insanitary 
conditions  that  exist  in  many  rural  districts.  Why  Caroline, 
Kent,  Dorchester,  Somerset,  Baltimore,  Worcester,  Howard, 
Prince  George's,  and  Frederick  Counties  were  excluded  from 
the  operation  of  the  provision  is  unknown. 

The  county  superintendent12  examines  certificates  and  cer- 
tifies candidates  for  teaching.  He  gives  temporary  certifi- 
cates which  are  graded  "first"  and  "second"  and  are  re- 
corded. Permanent  certificates  (for  a  period  of  five  years) 
are  issued  by  him  after  the  ability  of  the  candidates  has 
been  tested  in  actual  work  for  six  months.  For  this  pur- 
pose the  "county  examiner"  holds  regular  teachers'  ex- 
aminations, giving  notice  in  newspapers  or  otherwise. 

The  county  superintendent,  or  his  assistant,  is  required  to 
visit  schools  a  certain  number  of  times,  according  to  the  num- 
ber of  teachers  in  the  county ;  to  observe  and  to  make  sug- 
gestions ;  when  possible  to  attend  public  examinations ;  and 
to  make  a  quarterly  report  to  the  county  board.  If  the 
number  of  teachers  in  a  county  exceeds  one  hundred  and 
seventy-five,  the  board  may  appoint  an  assistant  superin- 
tendent, and  grade  supervisors  may  be  appointed  by  the 
county  boards  in  proportion  to  the  number  of  teachers. 

The  county  superintendent  receives  a  salary  fixed  by  the 
county  board,  and  in  his  role  as  secretary-treasurer  of  the 
board  his  bond  is  also  determined  by  it.  He  may  debate 
at  its  meetings,  but  has  no  vote.  In  addition  to  his  quarterly 
report  to  the  county  board,  he  prepares  the  annual  county 
report  to  the  state  board,  which  he  submits  also  to  the 
county  board. 

District  School  Trustees. — Each  district  of  each  county 

11  Laws  1894,  ch.  524. 

12  Code  1912,  art.  Ixxvii,  sec.  72  ff. 


489]  PUBLIC   EDUCATION  1 9 

has  a  board  of  three  school  trustees,13  appointed  by  the 
county  school  commissioners.  The  principal  teacher,  whom 
they  appoint  from  those  holding  certificates,  subject  to  con- 
firmation by  the  county  board,  is  ex  officio  secretary  of  the 
board.  The  school  trustees  have  the  care  of  the  school 
property ;  provide  for  repairs,  the  cost  being  determined  by 
the  county  board;  and  generally  supervise  their  schools. 
They  visit  them  frequently,  and,  if  possible,  cause  instruc- 
tion to  be  given  ten  months  of  the  year.  They  have  the 
power  of  expulsion  and  suspension  of  pupils,  subject  to 
final  appeal  to  the  county  board.  The  trustees  are  re- 
movable for  cause  by  the  county  board,  and  when  competent 
persons  for  the  office  of  trustee  cannot  be  found,  the  duties 
in  a  district  devolve  upon  the  county  board. 

Teachers. — Every  teacher14  must  hold  a  certificate  issued 
by  a  county  superintendent,  or  a  certificate  from  the  prin- 
cipal of  a  state  normal  school  or  from  the  principal  of  the 
normal  department  of  Washington  College,  or  a  diploma 
from  any  such  school,  or  any  normal  school  diploma  en- 
dorsed by  the  Maryland  state  superintendent  of  education, 
or  a  certificate  from  the  Maryland  State  Board  of  Educa- 
tion. Diplomas  from  reputable  college  departments  of 
pedagogy  rank  as  "first  grade"  certificates  for  elementary 
or  high  school  teaching,  and  exempt  the  holder  from  ex- 
aminations. Every  teacher  must  file  with  the  county  board 
a  quarterly  report,  and  is  not  entitled  to  pay  until  this  is 
done.  Certificates  may  be  annulled  by  the  county  board  on 
account  of  immoral  conduct,  subject  to  appeal  to  the  state 
board.  Persons  with  low  grade  certificates  who  have  taught 
a  certain  length  of  time  may  be  given  life  certificates  exempt- 
ing them  from  examination.  The  salaries  of  teachers  are 
fixed  by  the  county  board,  but  a  minimum  is  set  at  $300 
per  school  year,  and  a  gradation  is  made  of  minimum  salaries 
according  to  the  certificate  held  and  the  time  of  service. 
The  county  superintendent  submits  annually  to  the  county 
board  a  list  of  all  teachers  and  a  classification  of  their  cer- 

13  Code  1912,  art.  Ixxvii,  sec.  31  ff. 

14  Ibid.,  sec.  53  ff. 


2O  STATE   ADMINISTRATION    IN    MARYLAND  [490 

tificates,  which  is  based  on  scholarship,  executive  ability, 
personality,  and  teaching  power. 

An  act  of  1902"  and  subsequent  acts  of  I9O4,16  1906," 
I9o8,18  and  1912™  established  a  system  of  teachers'  pensions, 
by  which  a  person  who  has  taught  twenty-five  years,  has 
reached  the  age  of  sixty,  and  has  no  other  means  of  support, 
may  receive  a  pension  of  $200  a  year.  The  age  limit  may 
be  waived  by  the  board  in  extraordinary  cases.  For  this 
pension  the  annual  appropriation  after  1908  was  $25,000,  and 
in  1912  it  was  made  $28,000. 

A  teachers'  institute  is  held  in  each  county  once  a  year, 
continuing  for  at  least  five  days.20  At  times  two  or  more 
counties  combine  for  this  purpose.  District,  county,  and 
state  teachers'  associations  must  be  held,  and  the  county 
examiner  is  to  aid  them,  encourage  attendance,  secure  lec- 
turers, and  so  on.  These  associations  are  permitted  to  use 
school-houses  for  their  meetings.  The  State  Teachers'  As- 
sociation has  been  in  existence  for  some  years,  and  has 
annual  sessions  during  the  summer,  often  at  a  summer 
resort.  The  work  is  often  practical,  sometimes  including 
scientific  demonstrations. 

School  Attendance.21 — By  acts  of  I9O2,22  lOxXS,23  and 
io/)824  provision  is  made  for  compulsory  school  attendance 
of  children  between  eight  and  twelve  years  of  age,  and  for 
attendance  of  children  between  twelve  and  sixteen  who  are 
not  "employed  to  labor."  School  attendance  is  enforced 
by  "attendance  officers."  The  police  commissioners  of 
Baltimore  City  are  required  at  each  census  to  prepare  a  list 
of  all  children  between  six  and  sixteen  years  of  age,  and  to 
submit  it  to  the  city  school  commissioners.  Factory  pro- 

15  Laws  1902,  ch.  196. 


••  .Laws  xyuz,  en.  190. 

16  Laws  1904,  ch.  584. 

17  Laws  1906,  ch.  47SH- 

18  Laws  1908,  ch.  605. 

19  Laws  1912,  ch.  135. 

20  Code  1912,  art.  bcxvii,  sec.  92  ff. 

21  Ibid.,  sec.  153  ff. 

22  Laws  1902,  ch.  269. 

23  Laws  1906,  ch.  236. 

24  Laws  1908,  ch.  241. 


49 1  ]  PUBLIC  EDUCATION  21 

prietors  in  that  city  and  in  Allegany  County  are  required 
to  keep  certificates  on  hand,  open  to  inspection  by  attend- 
ance officers,  for  all  children  employed  under  sixteen  years 
of  age.  Children  between  twelve  and  sixteen  are  not  to  be 
employed  if  they  cannot  read  and  write,  unless  they  are 
regular  attendants  at  some  evening  or  other  school,  but  such 
children  are  excused  from  schooling  if  a  physician's  cer- 
tificate is  obtained  showing  that  attending  school  in  addition 
to  their  daily  labor  will  be  "prejudicial  to  health." 

In  I9I225  a  new  attendance  law  was  passed,  which  slightly 
raised  the  age  of  compulsory  attendance.  The  provisions  of 
the  compulsory  attendance  laws  were  poor  enough,  with 
their  exceptions  of  children  above  fourteen  who  are  "  em- 
ployed to  labor;"  but  the  law  of  1912  was  made  farcical  by 
a  provision  that  it  need  be  adopted  only  if  the  school  com- 
missioners for  the  county  should  approve  it  and  should  ap- 
point attendance  officers. 

The  attendance  of  every  deaf  or  blind  child  in  some  school 
for  the  deaf  or  blind  is  made  compulsory,  unless  the  child  is 
receiving  instruction  elsewhere  or  is  unable  to  receive  it. 
If  the  parents  or  guardians  of  such  a  child  are  not  able  to 
pay  for  transportation  to  and  from  the  school,  the  State 
furnishes  it. 

Baltimore  City. — The  school  organization  of  Baltimore 
City26  is  almost  completely  separate  from  the  state  organiza- 
tion. The  mayor  and  the  City  Council  are  given  full  power 
to  establish  a  system  of  free  public  schools,27  including  one 
or  more  schools  for  manual  industrial  training,  under  ordi- 

25  Laws  1912,  ch.  173. 

26  Code  1912,  art.  Ixxvii,  sec.  121  ff. 

27  "  The  act  of  1892,  chapter  341,  specifically  prescribes  the  method 
by  which  county  school  commissioners  ought  to  be  appointed,  but 
nowhere  in  this  article  is  the  method  for  the  appointment  of  school 
commissioners  in  Baltimore  City  designated.    This  section  gives  to 
the  city  the  whole  of  the  state's  power^  over  public  schools  in  the 
city,  subject,  of  course,  to  the  state's  right  of  repeal"   (Hooper  y. 
New,  85  Md.  581;  Baltimore  v.  Weatherby,  52  Md.  451).    "This 
does  not  apply  to  such  schools  as  St.  Mary's  Industrial  School  for 
Boys,  the  Maryland  Institute  for  the  Promotion  of  Mechanic  Arts, 
etc.,  although  the  governor  and  mayor  appoint  directors  or  trus- 
tees" (St  Mary's  Industrial  School  v.  Brown,  45  Md.  383). 


22  STATE   ADMINISTRATION    IN    MARYLAND  [49 2 

nances  and  rules  which  they  enact.  They  may,  by  law,  dele- 
gate supervisory  powers  and  control  to  a  board  of  school 
commissioners,  and  this  is  now  done.  As  will  be  seen  else- 
where in  this  chapter,  however,  reports  are  made  to  the  state 
board,  and  state  aid  is  received. 

The  Board  of  Commissioners  of  Public  Schools  of  Balti- 
more has  power  to  examine,  appoint,  and  remove  teachers, 
prescribe  their  qualifications,  and  fix  their  salaries,  subject 
to  the  approval  of  the  mayor  and  the  City  Council,  and  to 
select  text-books.  It  must  report  annually  to  the  State 
Board  of  Education  on  the  condition  of  schools  under  its 
charge,  and  must  include  a  statement  of  expenditures. 

The  mayor  and  the  City  Council  are  authorized  to  levy 
necessary  taxes  on  assessable  property  to  defray  the  public 
school  expenses  of  the  city.  No  limit  is  set  by  state  law  for 
this  taxation. 

Colored  Schools. — The  county  school  commissioners 
must,  "  if  the  colored  population  warrants,"  establish  at  least 
one  free  public  school  in  each  election  district  for  colored 
youths  between  six  and  twenty  years  of  age,  and  must  de- 
termine the  length  of  term.28  The  colored  schools  are  put 
under  the  same  laws  and  are  required  to  furnish  instruction 
in  the  same  branches  as  the  white  schools,  but  each  one  is 
under  the  direction  of  a  special  board  of  trustees  appointed 
by  the  county  board.  Colored  schools  are  supported  from 
the  general  school  fund,  and  the  total  amount  of  school 
taxes  paid  by  the  colored  people  of  any  county  or  of  Balti- 
more City,  together  with  any  donations  that  may  be  made 
for  the  purpose,  is  to  be  used  for  their  support. 

Criticism. — The  general  plan  of  control  in  Maryland's 
elementary  education,  with  its  centralization  from  the  dis- 
trict trustees  up  through  the  county  boards  and  the  State 
Board  of  Education  to  the  governor  as  an  appointive  center, 
is  undoubtedly  good.  The  control  by  the  county  boards  of 
strictly  county  matters  has  been  spoken  of  as  the  "most 

28  Code  1912,  art.  Ixxvii,  sec.  131  flf. 


493]  PUBLIC   EDUCATION  23 

efficient  and  economical  of  all  systems  for  rural  schools  in 
the  United  States."29 

There  are  three  needs  in  Maryland's  administration  of 
elementary  education.  First,  we  have  seen  how  unsatis- 
factory are  the  present  compulsory  education  laws.  The 
provisions  of  these  should  be  made  state-wide  and  strictly 
binding.  Secondly,  there  is  inadequate  supervision  of  the 
rural  schools,  due  largely  to  an  inadequate  number  of  super- 
visory officers.  This  fact  becomes  striking  when  comparison 
is  made  between  the  Baltimore  City  and  the  rural  schools. 
The  condition  has  been  pointed  out  in  an  educational  survey 
of  a  Maryland  county  in  which  a  member  of  the  United 
States  Bureau  of  Education  cooperated.30  The  county  super- 
intendent should  be  given  more  assistants.  Finally,  there 
should  be  higher  salaries  and  more  uniform  rules  in  regard 
to  the  training  of  the  teachers  throughout  the  State.  With 
the  present  salaries  good  teachers  are  difficult  to  obtain. 
Most  important,  however,  is  the  need  of  uniformity.  Under 
the  present  system,  by  which  qualifications  are  determined 
arbitrarily  in  each  county  by  the  county  board,  the  teachers 
in  one  county  may  be  college  graduates  and  other  well 
prepared  persons,  while  in  another  county  they  may  perhaps 
have  only  an  eighth-grade  education.  Furthermore,  ap- 
pointment and  dismissal  of  teachers  are  arbitrary,  and  poli- 
tics enter  into  a  matter  that  should  be  regulated  entirely  by 
merit.  For  the  sake  of  efficiency  and  uniformity  in  ele- 
mentary education,  and  also  in  justice  to  the  teachers,  a  civil 
service  system  should  be  inaugurated.31 

In  concluding  the  review  of  elementary  schooling  in  the 
State,  it  may  be  well  to  notice  that  in  1914  the  Department 
of  Education  recommended  an  educational  survey  of  all  the 
counties.  Such  a  detailed  survey  would  undoubtedly  throw 

29  Statement  of  a  member  of  the  Maryland  Department  of  Edu- 
cation. 

30  H.  N.  Morse,  E.  F.  Eastman,  and  A.  C.  Monahan,  An  Educa- 
tional Survey  of  a  Suburban  and  Rural  County  [Montgomery  Co., 
MA]. 

31  These  needs  have  been  pointed  out  by  various  persons,  includ- 
ing the  governor,  officials  of  the  United  States  Bureau  of  Educa- 
tion, and  members  of  the  Maryland  Department  of  Education. 


24  STATE   ADMINISTRATION    IN    MARYLAND  [494 

great  light  on  the  entire  situation  and  furnish  a  more  solid 
foundation  for  the  working  out  of  the  problems  involved. 

SECONDARY    EDUCATION 

High  Schools. — High  schools82  are  under  the  supervision 
of  the  county  officers.  County  boards  are  authorized  to 
establish  high  schools  whenever  it  seems  advisable,  subject 
to  the  approval  of  the  state  board,  or  a  joint  high  school  and 
graded  school  may  be  established;  all  to  be  under  control 
of  the  county  board.  High  schools  receiving  state  aid  are 
arranged  by  the  state  board  in  two  groups  according  to  the 
number  of  pupils,  number  of  teachers,  and  years  of  instruc- 
tion given.  In  the  first  group  four  years,  in  the  second 
group  three  years,  of  instruction  are  provided.33 

The  state  board  prepares  the  courses  of  study  for  the 
high  schools  under  its  supervision,  and  makes  by-laws  for 
their  government. 

It  is  the  duty  of  the  state  superintendent,  personally  or 
through  some  person  whom  he  designates,  to  inspect  an- 
nually all  high  schools  receiving  state  aid,  and  also  all  such 
other  schools  as  make  application  through  their  county  super- 
intendents to  receive  state  aid.  The  state  superintendent 
prepares  a  list  of  the  high  schools  and  the  amount  of  aid 
to  which  each  is  entitled,  based  on  information  obtained 
through  annual  inspections  and  written  reports  of  principals 
and  county  superintendents.  This  list  is  reported  to  the 
state  board  for  approval,  and  is  forwarded  to  the  treasury 
department. 

All  promotions  of  pupils  must  have  the  approval  of  the 
principal  and  of  the  county  superintendent.  A  diploma 
from  any  approved  four-year-course  high  school  admits, 
without  examination,  to  the  freshman  class  of  any  Mary- 
land college  receiving  state  aid. 

82  Code  1912,  art.  Ixxvii,  sec.  125  8. 

33  See  report  on  the  "  Educational  System  in  Maryland "  by  a 
special  committee  of  the  Board  of  State  Aid  and  Charities,  1913. 


495]  PUBLIC   EDUCATION  25 

Agricultural  high  schools  are  finding  a  place  more  and 
more  in  the  educational  system.  One  at  Sparks,  Maryland, 
is  regarded  as  one  of  the  best  of  its  kind  in  the  country.  The 
last  legislature3*  made  two  $5000  appropriations,  one  for 
buildings  for  an  agricultural  high  school  at  Federalsburg, 
and  one  for  land  for  a  similar  institution  at  Ridgely,  for 
which  $15,000  had  already  been  provided,  one  half  by  the 
citizens  and  one  half  by  the  county. 

The  educational  committee  of  the  Board  of  State  Aid  and 
Charities  said  of  these  high  schools:  "The  marked  success 
of  twelve  Agricultural  High  Schools  is  such  as  to  make 
highly  advisable  the  further  encouragement  of  this  type  of 
secondary  education.  The  demand  for  agricultural  courses 
all  over  the  State  is  very  great  and  your  committee  recom- 
mends some  additional  aid  along  this  line." 

Industrial  Schools. — Industrial  schools,35  where  domestic 
science  and  industrial  arts  are  taught,  are  established  by  the 
county  board  in  connection  with  the  colored  public  schools. 
They  are  annually  inspected  and  approved  by  the  state 
superintendent;  and  there  must  be  sent  annually  by  the 
state  board  to  the  comptroller  a  list  of  such  schools,  which 
are  entitled  to  receive  a  "  special  appropriation  for  industrial 
education."  Fifteen  hundred  dollars  is  appropriated  every 
year  for  each  county  with  such  a  school,  one  half  to  go  to 
the  maintenance  of  the  school  and  one  half  to  the  employ- 
ment of  a  supervisor  of  colored  schools,  who,  under  the 
direction  of  the  county  superintendent,  visits  colored  schools 
and  "causes  instruction  of  an  industrial  character  to  be 
made  a  daily  part  of  the  work  of  every  colored  school." 
But  this  $1500  is  not  appropriated  unless  the  average  at- 
tendance for  the  preceding  year  has  been  thirty  pupils,  and 
unless  there  are  ten  colored  schools  in  the  county  where 
the  colored  industrial  school  is  located.  If  there  are  less 
than  ten,  one  half  of  the  amount,  $750,  may  be  appropriated. 
The  control  of  colored  industrial  schools  and  the  employ- 
ment of  the  supervisor  are  in  the  hands  of  the  county  board. 

34  Laws  1912,  ch.  434. 

85  Code  1912,  art.  bcxvii,  sec.  142  ff. 


26  STATE   ADMINISTRATION    IN    MARYLAND  [496 

County  boards  may,  if  they  think  it  advisable,  make 
manual  training,  domestic  science,  and  agriculture  a  part  of 
the  course  of  instruction  in  the  colored  schools  of  the 
respective  counties,  conforming  to  the  course  prescribed  by 
the  state  board.  The  state  superintendent  supervises  and 
inspects  industrial  and  agricultural  training  in  the  counties. 

State  Normal  Schools. — There  are  two  white  state  normal 
schools38  in  Maryland,  one  in  Baltimore  City  and  one  at 
Frostburg.37  They  are  under  the  control  of  the  State 
Board  of  Education,  which  appoints  the  principals  and  the 
necessary  assistants.  The  state  board  prescribes  for  state 
normal  schools  and  normal  schools  receiving  state  aid  an 
academic  or  preparatory  course  and  qualifications  of  age 
and  scholastic  attainment  for  the  pupils.  In  all  such  schools 
there  must  be  a  two-year  normal  or  professional  course,  in 
which  the  common  school  branches  may  be  studied  and  in 
which  special  emphasis  is  given  to  professional  subjects,  in- 
cluding history  of  education,  school  organization,  methods 
of  teaching,  and  other  pedagogical  subjects.  Students 
satisfying  the  entrance  requirements  as  to  age  (boys  must 
be  seventeen  years  and  girls  sixteen  years  old)  are  admitted 
on  scholarships  from  a  city  or  county  school  board  or 
on  appointment  from  the  state  board.  These  scholarships 
are  apportioned  among  the  counties  and  Baltimore  City 
according  to  the  population.  In  addition  to  those  holding 
scholarships,  others  may  enter  at  the  discretion  of  the  state 
board,  on  paying  twenty-five  dollars  per  session,  until  the 
capacity  is  reached. 

These  normal  schools  are  in  every  way  under  the  super- 
vision of  the  state  board,  and  the  board  may  organize  ex- 
perimental schools  for  practical  work  for  the  state  normal 
school  students.  The  annual  appropriation  at  present 
(1914)  for  the  Baltimore  City  Normal  School  is  $20,000 
plus  $1000  for  repairs,  and  for  the  Frostburg  Normal 
School  $7000. 

36  Code  1912,  art.  Ixxvii,  sec.  82  ff. 

37  The  normal  department  of  Washington  College  will  be  treated 
in   connection   with   that   institution   under   the    subhead   "  Higher 
Education." 


497]  PUBLIC   EDUCATION  2/ 

In  1910  the  legislature  appointed  a  commission  to  in- 
vestigate the  establishment  of  a  new  Maryland  state  normal 
school,  which  the  state  superintendent  strongly  urged.38  In 
1912  there  was  provision  for  the  selling  of  the  property 
of  the  Maryland  State  Normal  School  of  Baltimore,  and  for 
the  purchase  of  new  land  and  buildings,  by  a  $600,000  bond 
issue  ;39  and  $25,000  was  appropriated  for  improvements  and 
additions  to  the  Frostburg  Normal  School.40 

There  is  also  a  state  normal  and  industrial  school  (No.  3) 
for  colored  teachers,  which  is  under  the  control  of  the  state 
board,  the  salaries  of  the  principals  and  assistants  of  which 
are  fixed  by  it,  and  the  curriculum  of  which  is  prescribed  by 
the  same  body.  This  school  was  established  by  act  of 
1908,"  was  opened  in  September,  1911,  at  Jericho  in  Prince 
George's  County,  and  receives  $5000  annually  out  of  the 
appropriation  for  the  system  of  free  public  schools.  The 
students  are  taught  agriculture,  manual  training,  and  other 
industrial  subjects,  in  addition  to  the  academic  courses,  and 
the  Department  of  Education  "  feels  that  this  may,  in  a 
measure,  at  least,  solve  some  of  the  problems  of  negro 
education."*2 

Other  Schools.— Since  i89843  the  Charlotte  Hall  School 
has  been  authorized  to  grant  a  three-year  state  scholarship 
to  a  student  from  each  of  the  legislative  districts  of  the 
State,  with  competitive  appointment  by  the  county  or  city 
board  of  school  commissioners.  To  St.  Mary's  Female 
Seminary,  St.  Mary's  City,  there  is  sent  one  "scholar" 
from  each  county  and  each  of  the  four  legislative  districts 
of  Baltimore,  selected  by  the  school  commissioners.44  These 
selections  are  non-competitive,  and  the  scholar  must  be 
"worthy  and  charitable;"  each  scholarship  is  for  three 
years.  The  same  officers  fill  one  scholarship  from  each 

38  Governor's  Report  1912. 

39  Laws  1912,  ch.  776. 

40  Ibid.,  ch.  178. 

41  Laws  1908,  ch.  599. 

42  Governor's  Report  1912. 
48  Laws  1898,  ch.  321. 

44  Code  1912,  art.  Ixxvii,  sec.  178. 


28  STATE   ADMINISTRATION    IN    MARYLAND  [498 

county  and  each  of  the  four  Baltimore  districts  in  the 
Maryland  Institute  (Schools  of  Art  and  Design)  in  Balti- 
more City.45 

From  time  to  time  the  State  makes  numerous  haphazard 
appropriations  to  private  schools,  all  of  which  it  would  be 
impossible  to  trace  here.  By  way  of  illustration  it  may  be 
noticed  that  in  1911  the  Maryland  School  for  Boys  and 
St.  Mary's  Industrial  School  each  received  $12,500  for 
building  purposes.46  In  1913  altogether  $300,267.16  was 
received  by  special  educational  institutions  (including  col- 
leges) ;  by  such  schools  other  than  colleges  and  exclusive  of 
the  school  for  the  deaf  and  dumb  at  Frederick,  a  total  of 
$58,800  was  received.  This  was  in  addition  to  the  old 
academic  fund.47 

Criticism. — One  peculiar  defect  exists  in  the  system  of 
secondary  education,  one  that  is  more  directly  connected 
with  "school  finance"  than  with  any  other  topic  and  will 
be  mentioned  later  in  that  connection.  It  is  the  existence 
in  the  State  of  a  number  of  private  academies  which  have 
received  state  aid  for  many  decades,  and  which,  in  almost 
all  cases,  are  duplicating  the  work  of  the  public  schools, 
either  elementary  or  secondary. 

On  the  other  hand,  the  good  condition  of  high  schools  is 
brought  out  in  the  following  summary  of  secondary  educa- 
tion in  the  State  in  the  already  mentioned  report  of  the 
Board  of  State  Aid  and  Charities :  "  The  High  School  Act 
of  1910  is  regarded  by  the  Federal  Department  of  Educa- 
tion, as  one  of  the  best  on  the  statute  books  of  any  of  our 
States.  It  has  several  marked  advantages.  The  group 
system  puts  the  state  aid  on  an  entirely  impartial  basis,  and 
we  feel  that  in  time  it  will  probably  result  in  as  good  a  High 
School  System  as  there  is  in  any  State  in  the  country." 

The  needs  of  secondary  education  in  the  State,  then,  may 
be  summarized  as  follows :  ( I )  elimination  of  unsystematic 
state  aid  to  private  academies;  (2)  greater  aid  to  high 

45  Code  1912,  art.  Ixxvii,  sec.  182. 

46  Report  of  the  State  Board  of  Education  for  1912. 

•**  See  Table  J  in  Report  of  the  State  Board  of  Education  for  1912. 


499]  PUBLIC   EDUCATION  29 

schools  and  normal  schools,  especially  the  latter,  and  above 
all  to  colored  industrial  and  normal  education. 

HIGHER  EDUCATION 

There  are  six  colleges  in  Maryland  which  regularly  re- 
ceive state  aid,  namely,  the  Johns  Hopkins  University,  the 
Maryland  Agricultural  College,  St.  John's  College,  Western 
Maryland  College,  Washington  College,  and  Blue  Ridge 
College.  In  addition  to  these  six  there  are  one  or  two 
other  colleges  which  have  received  a  certain  amount  of 
state  aid,  as,  for  example,  the  University  of  Maryland,  and 
the  old  Baltimore  Medical  College,  now  consolidated  with 
the  University  of  Maryland.  Of  the  six  first  mentioned,  all 
give  scholarships  provided  for  by  state  appropriation,  which 
are  filled  by  the  county  or  district  school  boards  by  means  of 
competitive  examination. 

St.  John's  College  at  Annapolis  is  a  military  institution, 
with  a  commandant  detailed  from  the  United  States  Army ; 
it  gives  mainly  classical  work,  and  had  two  hundred  and 
forty-three  free  scholarships  in  191 2-1 3.48  To  it  there  is 
sent  one  state  scholar  from  each  senatorial  district  of  the 
State,  who,  after  taking  a  competitive  examination,  is  ap- 
pointed by  the  county  or  city  school  board  "by  and  with 
the  advice  and  consent  of  the  local  senator,"  and  who  is 
required  to  pledge  himself  to  remain  four  years  at  the 
institution  and  to  teach  in  the  State  for  at  least  two  years 
after  graduation.49  The  college  received  $15,000  in  1913 
and  a  like  amount  in  I9I4.80 

Western  Maryland  College  at  Westminster  is  coeduca- 
tional. It  gives  courses  in  classical  branches,  and  also  has 
a  seminary  to  prepare  students  for  the  ministry  of  the 
Methodist  Protestant  Church.  It  is  allowed  two  state 
scholars,  one  male  and  one  female,  from  each  senatorial 

48  Report  of  State  Board  of  Education,  Oct  17,  1913,  Table  J. 

49  Code  1912,  art.  Ixxvii,  sec.  179. 

50  Seventh  Biennial  Report  of  the  Board  of  State  Aid  and  Chari- 
ties, Table  3. 


3O  STATE   ADMINISTRATION    IN    MARYLAND  [5OO 

district,  chosen  in  the  same  way  as  the  state  scholars  to  St. 
John's,51  Its  appropriation  is  now  $3100  per  year.62 

Similarly,  one  scholar  is  sent  from  each  district  to  Blue 
Ridge  College,  at  New  Windsor,  a  small  college  with  a 
classical  curriculum,  which  only  recently  began  to  receive 
state  aid.  In  1912  the  legislature  appropriated  $5000  to 
it.83  Its  total  number  of  free  scholarships  in  1912-13  was 
twenty-seven.54 

Washington  College  at  Chestertown  makes  a  fourth  state- 
aided  college  doing  classical  work.  It  also  has  a  normal 
department  which  was  established  by  act  of  i896,55  when 
the  "visitors  and  governors"  were  authorized  to  open  a 
teachers'  department,  with  a  course  in  pedagogy  of  not  less 
than  three  years.  In  this  department  is  allowed  one  scholar- 
ship to  an  "  indigent  female,"  a  graduate  of  a  public  school, 
from  each  county  of  the  Eastern  Shore,  the  scholar  being 
pledged  to  take  up  teaching  in  Maryland  after  graduation. 
This  appointment  is  made  after  competitive  examination 
by  the  county  board.  One  free  state  scholarship  is  also 
granted  to  the  college  for  a  male  or  female  student  from 
each  county  of  the  Western  Shore,  in  either  the  normal  or 
the  collegiate  department.56  By  act  of  1912"  Washington 
College  received  an  appropriation  of  $20,000  for  the  fiscal 
year  1913  and  a  like  amount  for  1914. 

For  several  years  St.  John's  College  has  been  a  part  of 
the  University  of  Maryland,  in  Baltimore,  an  institution 
with  courses  in  law  and  medicine.  The  connection  is  little 
more  than  nominal,  however,  and  the  university  is  not  a 
university  in  the  proper  use  of  the  term,  since  no  graduate 
work  is  given  and  no  collegiate  preparation  is  necessary  to 

51  Code  1912,  art.  Ixxvii,  sees.  180-181. 

52  Seventh  Biennial  Report  of  the  Board  of  State  Aid  and  Chari- 
ties, Table  3. 

53  Laws  1912,  ch.  229. 

54  Report  of  State  Board  of  Education,  Oct.  17,  1913,  Table  J. 
65  Laws  1896,  ch.  63. 

56  Code  1912,  art.  Ixxvii,  sec.  183  ff. 
67  Laws  1912,  ch.  93. 


5Ol]  PUBLIC   EDUCATION  31 

enter  the  law  and  medicine  courses.  The  Baltimore  Medical 
College  has  only  recently  been  consolidated  with  the  Uni- 
versity of  Maryland.  All  of  the  above  mentioned  institu- 
tions occasionally  receive  special  appropriations  from  the 
State  for  building  purposes. 

The  Maryland  Agricultural  College.59 — This  institution  is 
unique  among  Maryland  colleges.  It  is  the  only  one  over 
which  the  State  exercises  any  direct  control  and  therefore  is 
the  only  one  which  is  in  any  sense  a  state  college.  It  is  the 
only  Maryland  college  that  confines  its  work  largely  to  the 
natural  sciences.  As  an  agricultural  institution,  many  agri- 
cultural activities  are  correlated  with  it,  such  as  the  Agri- 
cultural Experiment  Station,  farmers'  institutes,  animal 
food  and  fertilizer  inspection  and  analysis,  and  horticultural 
inspection.  It  also  offers  courses  in  civil,  electrical,  and 
mechanical  engineering.  The  central  position  of  the  institu- 
tion in  the  various  agricultural  activities  of  the  State  will  be 
treated  in  detail  in  a  later  chapter. 

The  Johns  Hopkins  University. — The  character  of  this 
institution  scarcely  needs  description,  with  its  international 
reputation  as  a  graduate  school  in  the  arts  and  sciences  and 
in  medicine. 

There  has  recently  been  established  in  connection  with  the 
university  a  department  of  engineering.  The  legislature  of 
I9I259  provided  for  a  bond  issue  of  $600,000  and  for  an 
annual  appropriation  of  $50,000.  One  hundred  and  twenty- 
nine  state  scholarships  are  offered  each  year.  Three  of 
these  go  to  each  of  the  following  institutions :  Loyola  Col- 
lege, Maryland  Agricultural  College,  Mt.  St.  Mary's,  Rock 
Hill,  St.  John's,  Washington  College,  and  Western  Maryland 
College.  The  rest  are  apportioned  among  the  senatorial 
districts  in  proportion  to  their  respective  representation  in 
the  House  of  Delegates.  These  scholarships  entitle  the 
holders  to  free  tuition,  including  laboratory  and  other  fees. 
One  of  them  from  each  county  or  each  district  of  Balti- 

68  Code  1912,  art.  Ixxvii,  sec.  177  ff. 
59  Laws  1912,  ch.  90. 


32  STATE   ADMINISTRATION    IN    MARYLAND  [$O2 

more  is  known  as  a  "  full  senatorial  scholarship "  entitling 
its  holder  to  board  and  lodging,  or  $200  in  lieu  thereof.  In 
this  department  the  plan  is  to  give  undergraduate  and 
graduate  work,  including  professional  and  research  degrees. 
An  unfortunate  provision  of  the  act  endowing  the  depart- 
ment is  the  requirement  that  scholars  must  be  certified  by 
their  respective  state  senators.  This  makes  the  entrance  of 
a  political  element  possible.  With  this  exception  the  organ- 
ization is  good. 

Proposed  State  University.— -It  has  recently  been  pro- 
posed that  a  state  university  be  established  in  Maryland. 
This  seems  not  only  unnecessary,  but  impracticable.  In  the 
sphere  of  graduate  work  the  Johns  Hopkins  University  is  all 
that  could  be  needed.  It  is  true  that  some  of  the  colleges  of 
Maryland  are  'duplicating  each  other's  work.  But  it  is 
doubted  if  they  could  properly  be  consolidated,  on  account 
of  their  historic  separation.  What  is  needed  is  some  central 
supervision  of  all  colleges  receiving  state  aid,  which  is,  of 
course,  quite  different  from  central  control. 

According  to  the  Board  of  State  Aid  and  Charities,  only 
one  of  the  six  Maryland  colleges  receiving  state  aid  is  graded 
by  the  Federal  Bureau  of  Education  as  strictly  a  college. 
Promises  have  been  made  by  this  bureau  soon  to  investigate 
Maryland  colleges  thoroughly  and  to  grade  them.  This  in- 
vestigation will  be  looked  forward  to  with  interest,  for  some 
of  the  colleges  have  been  raising  their  standards  rapidly. 
It  is  undoubtedly  true,  however,  that  some  of  them  do  not 
take  full  college  rank,  and  it  seems  very  important  that  some 
central  authority  be  given  the  standardizing  of  the  colleges 
in  the  State,  at  least  of  those  which  receive  state  aid,  and 
the  control,  through  such  standardization,  of  appropriations 
to  colleges.  Such  a  state  authority  could  require  the  stand- 
ards of  a  college  to  be  sufficiently  high  before  it  might  re- 
ceive an  appropriation.  This  could  not  be  done  immedi- 
ately, but  the  standards  of  the  colleges  now  receiving  aid 
could  be  gradually  improved. 


503]  PUBLIC   EDUCATION  33 

DEAF,  DUMB,  AND  BLIND60 

The  Maryland  Institute  for  the  Deaf  and  Dumb,  at 
Frederick,  Maryland,  was  established  by  act  of  1867  (ch. 
247),  with  a  president  and  board  of  thirty  visitors  appointed 
by  the  governor  for  life.  Vacancies  are  filled  by  the  gov- 
ernor. To  this  institution  the  governor  sends  scholars,  upon 
certification  of  local  authorities,  for  terms  of  not  over  seven 
years.  Two  hundred  dollars  per  year  is  made  the  maximum 
expense  for  one  student.  The  governor  must  dispose  of 
applications  in  the  order  received.  When  the  maximum 
sum  has  been  expended,  no  more  persons  can  be  sent  to  the 
institution  until  a  vacancy  occurs.  The  Maryland  School 
for  the  Blind  at  Overlea,  Maryland,  though  a  private  in- 
stitution, has  become,  as  far  as  its  finances  are  concerned, 
practically  a  state  institution ;  in  it  are  placed  for  instruction 
such  indigent  blind  persons  of  seven  years  and  upward,  in- 
habitants of  the  State  and  of  the  city  or  county  from  which 
they  are  certified,  as  are  recommended  to  the  governor  by 
the  county  commissioners  of  the  counties  or  by  the  judges  of 
the  orphans'  court  of  Baltimore  City. 

In  connection  with  the  Maryland  School  for  the  Blind 
there  is  a  school  for  deaf,  dumb,  and  blind  colored  children, 
also  at  Overlea,  Maryland.  While  separate  from  the  former 
institution,  it  is  a  department  of  it. 

FARMERS'  INSTITUTES 

By  act  of  iSoXS61  a  department  of  farmers'  institutes62  was 
established  with  the  purpose  of  bringing  to  the  farmers  in- 
formation to  enable  them  to  avoid  some  of  the  prevalent 
mistakes  in  agriculture.  Farmers'  institutes  are  held  every 
year  in  every  county,  and  there  may  be  an  additional  one  in 
each  county.  They  are  under  the  control  of  a  "  director," 

60  Code  1912,  art.  xxx,  sec.  i  ff. 

61  Laws  1896,  ch.  102. 

62  Code  1912,  art.  Ixxvii,  sec.  148  ff. 

3 


34  STATE  ADMINISTRATION   IN    MARYLAND 

appointed  by  the  trustees  of  the  Maryland  Agricultural 
College,  who  "must  be  well  versed  in  agriculture  and  of 
practical  experience,"  and  whose  salary  and  duties  are  fixed 
by  the  trustees  of  the  college.  These  institutes  form  a 
department  of  the  Agricultural  College,  similar  to  the  State 
Agricultural  Experiment  Station;  $6000  is  appropriated 
annually  for  them,  payable  in  October  to  the  order  of  the 
college. 

PUBLIC  LIBRARIES 

For  the  encouragement  of  libraries  in  connection  with 
public  schools,  ten  dollars  per  year  is  allowed  to  each  dis- 
trict if  the  community  raises  a  like  amount;  with  this  are 
bought  books  chosen  by  the  district  board  and  the  teachers 
from  a  list  furnished  by  the  state  board.63 

Maryland  Public  Library  Commission. — There  is  a  Mary- 
land Public  Library  Commission  whose  jurisdiction  extends 
to  all  but  Baltimore  County.  The  only  apparent  excuse  for 
this  exclusion  is  that  this  county  is  so  near  Baltimore  City 
as  not  to  need  library  facilities  of  its  own.  This  commission 
is  composed  of  four  persons  appointed  every  two  years  by 
the  governor — two  of  whom  must  be  women — together  with 
the  state  librarian,  the  "  superintendent  of  public  instruc- 
tors,"64 and  the  librarian  of  the  Enoch  Pratt  Free  Library 
of  Baltimore.  It  is  an  unpaid  commission,  but  members  re- 
ceive travelling  expenses  for  attending  meetings.  It  elects 
its  own  president  and  secretary-treasurer,  and  reports 
annually  to  the  governor.  The  duties  of  this  commission 
are  to  advise  persons  in  charge  of  public  libraries  and  public 
school  libraries  in  the  selection  of  books,  cataloguing,  and  so 
on,  and  to  conduct  a  system  of  travelling  libraries  throughout 
the  State.  The  appropriation  for  the  work  is  $1500  a  year, 
from  which  free  libraries  may  be  established  in  counties, 
cities,  and  districts,  but  more  than  $100  may  not  be  spent 
for  books  for  one  library. 

68  Code  1912,  art.  Ixxvii,  sec.  99  ff. 
64  State  superintendent  of  education. 


505]  PUBLIC   EDUCATION  35 

The  county  commissioners  of  any  county  may  establish 
a  public  library  at  the  county  seat,  with  branches  through- 
out the  county,  and  may  levy  a  tax  for  its  support  of  not 
over  five  cents  on  $100.  A  municipality  may  levy  seven 
cents  on  $100  for  a  library,  and  a  district  may  also  do  this 
if  a  majority  of  the  voters  so  petition  the  county  commis- 
sioners, in  which  case  the  library  is  conducted  as  a  municipal 
one  would  be.  In  the  establishment  of  these  libraries  the 
county  or  municipal  authorities  appoint  nine  directors  for  a 
term  of  six  years  (three  every  two  years),  who  receive  no 
compensation  and  may  be  removed  for  cause.  They  elect  a 
president,  a  vice-president,  a  secretary,  and  a  treasurer; 
make  by-laws  for  the  regulation  of  the  library ;  approve  the 
bond  of  the  treasurer ;  have  control  of  the  expenditures  and 
of  the  construction  of  buildings;  have  supervision  of  all 
property;  may  obtain  new  buildings  and  grounds;  and  ap- 
point a  librarian  and  assistants,  whom  they  may  remove  and 
whose  compensation  they  determine.  Each  such  library 
board  must  report  annually  to  the  county  commissioners  or 
to  the  municipal  legislative  authority,  as  the  case  may  be, 
and  must  include  with  the  report  a  financial  statement;  a 
copy  of  this  report  is  forwarded  to  the  Public  Library 
Commission. 

State  Library?* — For  many  years  there  has  been  a  state 
library  at  Annapolis.  The  librarian,  who  is  appointed  by 
the  governor,  binds  all  the  laws,  journals,  and  documents  of 
the  General  Assembly,  and  distributes  them  to  certain 
officers  of  this  and  other  States  and  to  public  libraries  in 
Maryland.  A  library  committee  of  three  or  more  persons 
is  appointed  without  compensation  by  the  court  of  appeals, 
to  establish  rules  and  regulations  for  the  management  of  the 
library,  and  to  purchase  books,  maps,  and  periodicals  for  the 
library,  for  which  the  sum  of  $500  is  annually  allowed. 

In  its  report  for  1914  the  State  Board  of  Education 
recommended  that  the  Public  Library  Commission  be  trans- 
ferred to  the  office  of  the  state  librarian  in  Annapolis,  since 

65  Code  1912,  art.  Iv. 


36  STATE   ADMINISTRATION    IN    MARYLAND  [506 

the  work  of  the  two  offices  is  closely  allied,  and  since  such 
a  transfer  would  make  possible  the  use  of  the  same  clerical 
force  for  both,  and  thereby  save  administration  expenses. 

EDUCATIONAL  FINANCE66 

All  property  conveyed  in  any  way  to  any  particular  county 
or  school  district  for  public  education  is  to  be  held  in  trust 
by  the  county  board ;  and  is,  together  with  all  money  in- 
vested in  trust  for  the  benefit  of  the  public  schools,  exempt 
from  all  state,  county,  or  local  taxes.67 

The  state  tax  for  education,  which  is  levied  on  taxable 
property  throughout  the  State  annually,  is  received  by  the 
treasurer  and  apportioned  by  the  comptroller  among  the 
counties  and  Baltimore  City  in  proportion  to  the  population 
between  five  and  twenty  years  of  age  ;68  a  certain  amount  is 
deducted  if  the  schools  in  a  county  are  kept  open  for  less 
than  nine  months  or  if  any  white  teacher,  regularly  em- 
ployed, receives  less  than  $300  a  year.69  From  this  fund 
are  also  taken  annual  appropriations  for70  the  state  normal 
schools,  the  colored  normal  school,  the  salary  of  the  state 
superintendent,  the  salary  of  the  clerk  to  the  state  super- 
intendent, and  the  expenses  of  the  state  board.  The  sources 
of  revenue  for  public  education  are  the  state  school  tax,  the 
county  school  tax,  and  various  special  funds.  In  1901  there 
was  received  and  expended  on  public  education  $727,314.41, 
and  in  1911  (ten  years  later)  $i,493,76o.6o.71  In  1913  the 
state  levy  was  16%  cents  on  each  $100,  which  yielded  $i,- 
625,208.88,  the  county  levy  amounted  to  $2,846,176.18,  and 
the  total  received  from  all  sources  was  $4,494, I95-76.72 

Although  school  revenues  have  greatly  increased  within 
the  last  few  years,  it  may  be  said  that  more  money  is  needed, 

68  See  reports  of  the  board  for  recent  statistical  details. 

67  Code  1912,  art.  Ixxvii,  sees.  175,  176. 

68  Ibid.,  art.  Ixxvii,  sec.  135  ff. 

6»  For  Garrett  County,  7l/2  months  and  $200. 

70  Code  1912,  art.  Ixxvii,  sec.  139. 

71  Governor's  Report  1912. 

72  Report  of  State  Board  of  Education  for  1913,  Table  C. 


5O/]  PUBLIC   EDUCATION  37 

especially  for  better  salaries  for  teachers.  Certain  needs 
and  principles  in  Maryland  school  finance  may  be  enumer- 
ated briefly.73  A  great  deal  of  the  money  for  the  support 
of  the  school  system  is  obtained  from  the  above  mentioned 
school  tax.  It  has  been  suggested  that  this  be  raised  to 
twenty  cents.  "A  comparative  study  of  Public  School 
Systems  in  the  forty-eight  States  by  the  Russell  Sage  Foun- 
dation, gives  Maryland  a  rank  of  forty-six  in  the  ratio  of 
amount  spent  for  school  purposes  to  wealth,  the  same  being 
but  twenty-one  cents  for  each  one  hundred  dollars  of  wealth. 
The  same  report  ranks  Maryland  thirty-eighth  in  the  amount 
of  thirteen  cents  per  day  per  child."74 

In  addition  to  support  by  taxation,  there  are,  as  we  have 
seen,  a  number  of  funds  in  the  treasury  set  aside  for  special 
educational  purposes.  The  difficulties  here  are  that  some 
parts  of  the  system  receive  support  from  the  general  fund 
which  should  receive  special  appropriation,  if  any,  and  that 
on  the  other  hand  some  of  these  special  funds  support  in- 
stitutions not  worthy  of  support.  Most  notable  of  these  is 
the  "academic  fund,"  an  historic  fund  which  gives  aid  to 
private  secondary  institutions  which  have  outgrown  their 
usefulness.  These  old  private  academies  should  be  trans- 
formed into  high  schools  with  uniformly  high  standards  or 
should  go  out  of  existence. 

As  for  the  distribution  of  school  funds  throughout  the 
counties,  the  present  system,  based  on  the  proportionate 
county  population  between  five  and  twenty  years  of  age,  is 
fairly  good.  It  is  certainly  better  than  the  very  inequitable 
plan  followed  in  some  other  States,  which  is  based  on  the 
proportion  of  assessed  wealth.  It  enables  the  richer  por- 
tions of  the  State  to  help  the  poorer.  The  ideal  plan  for 
such  distribution,  however,  as  laid  down  by  a  special  com- 
mittee of  the  Board  of  State  Aid  and  Charities,  is  one  based 

73  Most  of  these  recommendations  are  fully  discussed  in  a  report 
on  the  Maryland  educational  system,  made  by  a  special  committee 
of  the  Board  of  State  Aid  and  Charities  in  1913,  and  many  of  them 
are  also  mentioned  in  the  last  report  of  the  Department  of  Education. 

74  See  above  report  of  the  committee  of  the  Board  of  State  Aid 
and  Charities. 


38  STATE   ADMINISTRATION    IN    MARYLAND  [508 

on  a  combination  of  two  principles,  namely,  the  proportion 
of  aggregate  days  of  attendance,  and  the  proportionate 
number  of  teachers  actually  employed. 

Concerning  the  support  of  colleges  by  the  State,  two 
changes  of  policy  have  been  suggested.  It  is  recommended, 
first,  that  support  be  withdrawn  from  colleges  that  do  not 
measure  up  to  a  required  standard,  and  possibly  from  those 
that  duplicate  each  others'  work,  and  second,  that  colleges  be 
refused  support  to  carry  on  preparatory  work  that  is  already 
being  done  by  recognized  secondary  institutions.  These 
methods  would  be  very  potent  in  bringing  Maryland  colleges 
up  to  high  standards,  and  they  are  strongly  urged  by  the 
Board  of  State  Aid  and  Charities.  While  inherently  sound, 
they  are,  as  recommended,  probably  too  drastic.  The  trans- 
formation of  higher  educational  institutions  cannot  be  in- 
stantaneous. They  should  be  required  gradually  to  improve. 

The  following  general  principles,  based  mainly  on  recom- 
mendations from  the  federal  commissioner  of  education,  are 
laid  down  by  the  special  educational  committee  of  the  Board 
of  State  Aid  and  Charities  already  mentioned:  (i)  Ex- 
penses of  administration  should  be  taken  out  of  the  school 
tax,  and  other  expenses  should  be  provided  out  of  the  gen- 
eral treasury.  The  cost  of  maintenance  of  the  state  normal 
schools  and  the  appropriations  to  secondary  schools  and 
institutions  of  higher  learning  should  be  provided  for  from 
the  general  treasury.  (2)  Appropriation  should  be  made 
only  to  institutions  over  which  the  State  through  its  regular 
educational  officers,  or  through  boards  of  its  own  appoint- 
ment, can  exercise  a  direct  control.  (3)  A  common  basis 
should  be  established  for  all  institutions  of  one  kind,  and  for 
all  political  units  of  one  kind,  for  example,  counties.  (4) 
Duplication  of  appropriations  by  special  act,  and  continu- 
ing appropriations  for  scholarships,  and  so  on,  should  be 
eliminated. 


509]  PUBLIC  EDUCATION  39 

SUMMARY 

The  needs  of  public  educational  administration  in  Mary- 
land may  be  recapitulated  as  follows :  ( i )  Elementary  educa- 
tion: (a)  a  certain  amount  of  consolidation;  (b)  greater 
supervision,  especially  in  the  rural  districts ;  (c)  a  systematic 
civil  service  for  teachers,  which  will  insure  much  higher 
salaries,  salaries  according  to  efficiency,  and  appointment  and 
tenure  according  to  merit;  (d)  to  secure  all  this  needed 
standardization,  a  vesting  of  authority  to  make  it  effective 
in  the  state  board;  and  a  corresponding  divesting  of  local 
boards  of  loose  discretionary  powers.  This  is  owed  to  the 
State,  to  the  pupil,  and  perhaps  above  all  to  the  teacher; 
(e)  a  comprehensive,  compulsory  attendance  law,  with 
proper  machinery  and  power  for  its  enforcement;  (f)  an 
educational  survey  of  all  the  counties. 

(2)  In  general,  secondary  education  in  the  State  is  well 
organized.     The  needs  are:  (a)  abolishment  of  state  aid  to 
the  old  private  academies  which  duplicate  the  work  of  state 
schools;  (b)  more  concentration  in  industrial  and  especially 
in  normal  school   work  in  order  to  prepare  the  trained 
teachers  that  are  so  greatly  needed,  particularly  in  the  educa- 
tion of  the  colored  race. 

(3)  Higher  education:  the  establishment  of  a  central  au- 
thority with  power  to  supervise  though  not  control  all  col- 
leges receiving  state  aid,  so  that  such  colleges  may  receive 
aid  in  proper  proportion,  and  may  be  made  to  bring  their 
standards  up  to  full  collegiate  requirement.     This  central 
authority  might  be  the  State  Board  of  Education  or  a  sepa- 
rate board,  preferably  the  former.     Great  care  should  be 
taken  that  it  be  kept  free  from  political  influence;  it  should 
be  composed  of  highly  educated  and  independent  men.     This 
plan  should  take  the  place  of  the  inadvisable  one  of  estab- 
lishing a  state  university. 

(4)  Finance:   (a)   an  imposing  of  sufficient  tax  rates; 
(b)  an  abolition  of  the  special  and  useless  appropriations 


4O  STATE   ADMINISTRATION    IN    MARYLAND  [5  IO 

which  we  have  already  noted  in  secondary  education;  (c) 
an  equitable  distribution  of  state  money  among  political 
units  and  institutions  which  may  be  supervised  by  state 
educational  officers,  and  which  measure  up  to  set  standards. 
This  need  is  manifest  mainly  in  secondary  and  higher 
education. 


CHAPTER   II 
PUBLIC  HEALTH 

The  governmental  organ  whose  functions  are  most  directly 
concerned  with  public  health  in  the  State  is  the  State  Board 
of  Health.  There  are,  however,  a  number  of  other  branches 
in  which  public  health  is  the  ultimate  object,  which  will  be 
first  considered. 

LICENSING  BOARDS 

There  are  certain  licensing  boards  for  various  professions 
and  trades  in  the  State.  All  of  these  boards,  except  those 
of  medicine  and  surgery,  have  members  appointed  by  the 
governor.  These  boards  examine  applicants  for  the  spe- 
cified professions,  according  to  methods  laid  down  by  state 
laws  ;  charge  certain  small  fees ;  issue  licenses ;  and  have  the 
power  of  revoking  licenses  for  certain  causes,  after  a  public 
hearing  has  been  given. 

The  development  of  licensing  boards  for  various  pro- 
fessions is  interesting.  The  right  of  the  State  to  such  con- 
trol is  one  exercised  only  in  modern  times.  The  first  laws 
in  Maryland  affecting  the  control  of  the  practice  of  medi- 
cine and  surgery  appeared  shortly  after  1880.  In  this 
branch,  also,  it  may  be  noted  that  the  profession  is  given 
direct  control  over  its  own  members.  Two  boards,  one  of 
allopathy  and  one  of  homeopathy,  are  chosen  by  the  Mary- 
land State  Medical  and  Chirurgical  Faculty  and  the  State 
Homeopathic  Society  respectively.  Each  board  examines 
applicants  of  its  own  school  of  practice. 

The  other  boards  are  chosen  by  the  governor,  but  usually 
from  lists  furnished  by  the  profession.  The  establishment 
of  control  over  dentistry  dates  from  the  same  period  as  that 


42  STATE   ADMINISTRATION   IN    MARYLAND  [512 

over  medicine.  Strangely  enough,  the  veterinary  board  next 
came  into  existence,  in  1894.  Pharmacy  followed  in  1902, 
and  in  1904  the  board  of  examiners  for  nurses  was  provided. 

VACCINATION1 

There  is  a  state  vaccine  agency  in  Baltimore  City  which 
has  existed  for  many  years.2  The  governor,  with  the  advice 
and  consent  of  the  Senate,  appoints  a  state  vaccine  agent 
(a  physician)  for  six  years,  who  furnishes  physicians  in  the 
State  with  good  virus  gratuitously,  keeps  a  record  of  such 
dispensing,  and  advertises  the  subject  in  the  newspapers  at 
certain  intervals.  He  reports  annually  to  the  governor. 

When  a  child  is  vaccinated  and  its  parents  or  guardians 
are  too  poor  to  pay,  the  county  commissioners,  or  the  mayor 
and  the  City  Council,  may  be  required  to  bear  the  expense, 
but  the  county  or  city  authorities  may  make  a  contract  with 
a  physician  to  vaccinate  all  who  apply.  It  is  the  duty  of 
every  physician  to  vaccinate  all  children  presented  to  him 
for  vaccination  within  a  year  after  birth,  and  all  persons 
who  apply  to  him  who  are  not  already  effectually  vaccinated. 
Vaccination  is,  by  law,  compulsory  in  the  public  schools. 

STATE  DEPARTMENT  OF  HEALTHS 

We  now  turn  to  that  branch  of  Maryland  administration 
which  deals  most  directly  with  the  health  of  the  public, 
largely  through  sanitation. 

The  State  Board  of  Health  of  Maryland,  the  sixth  oldest  state 
board  in  the  Union,  was  created  by  legislative  enactment  in  January, 
1874,  and  organized  May  6th  of  the  same  year.  ...  It  early  devoted 
its  attention  to  the  investigation  of  the  causes  of  diseases  and  their 
suppression,  and  to  the  registration  of  births  and  deaths.  The 
urgent  need  of  a  chemist  soon  became  manifest,  and  provision  was 
made  for  the  employment  of  such  an  official  as  early  as  1887.  Ten 
years  later  the  equipment  of  a  bacteriological  laboratory  was  recom- 
mended, and  the  work  was  begun  in  June  of  the  following  year. 


1  Code  1912,  art.  xliii,  sec.  53  ff. 

2  Laws  1864,  ch.  269,  sec.  i  ff. 
1  Code  1912,  art.  xliii,  sec.  I  ff. 


513]  PUBLIC    HEALTH  43 

In  1910  the  work  of  the  Board  was  organized  into  bureaus,  systema- 
tizing its  performance  and  enlarging  its  sphere  of  usefulness.4 

The  official  title  of  this  body  is  the  State  Department  of 
Health.  It  is  composed  of  seven  members,  including  one 
experienced  engineer  and  three  experienced  physicians,  ap- 
pointed, two  every  two  years,  by  the  governor  with  the  con- 
sent of  the  Senate ;  there  is  also  a  secretary.  The  attorney- 
general  of  the  State  and  the  commissioner  of  health  of  Balti- 
more City  are  ex  officio  members. 

Control  by  the  board  extends  over  the  counties,  and  it 
cooperates  with  the  Public  Health  Department  of  Baltimore 
City.  In  general,  the  work  of  the  State  Department  of 
Health,  as  set  forth  by  the  law,  is  as  follows:5  "The  State 
Board  of  Health  shall  have  general  care  of  the  sanitary 
interests  of  the  people  of  this  State;  they  shall  make  sani- 
tary investigations  and  inquiries  respecting  the  causes  of 
disease  and  especially  epidemics,  the  causes  of  mortality  and 
the  influence  of  locality,  employments,  habits,  and  other  cir- 
cumstances and  conditions  upon  the  health  of  the  people; 
they  shall  inquire  into  ...  all  nuisances  affecting  the  public 
health,"  and  they  are  authorized  to  apply  to  circuit  court 
judges  for  injunctions  to  restrain  nuisances. 

The  board  is  also  authorized  to  organize  throughout  the 
State  local  boards  or  advisory  committees  which  are  to 
report  quarterly  to  it  on  sanitary  conditions  in  the  State. 
The  board  may  send  a  committee  or  its  secretary  to  in- 
vestigate any  unusual  sickness  or  mortality,  and  in  case  of  an 
epidemic  the  board  is  to  have  all  necessary  sanitary  measures 
taken.  In  such  cases  of  epidemic  it  may,  with  the  approval 
of  the  governor,  obtain  from  the  comptroller  not  over  $10,- 
ooo  from  any  unappropriated  money  in  the  treasury  for 
the  carrying  out  of  these  sanitary  measures. 

The  Secretary. — The  board  elects  a  secretary,  who  is  the 
chief  executive  officer  and  who  has  direct  charge  of  public 
health  administration  in  the  State.  He  must  be  an  "edu- 

*C.  W.  G.  Rohrer,  "The  State  Board  of  Health  of  Maryland" 
(printed  as  a  pamphlet). 
5  Code  1912,  art.  xliii,  sec.  3  ff. 


44  STATE   ADMINISTRATION    IN    MARYLAND  [514 

cated  physician  "  and  experienced  in  sanitation ;  he  may  be 
chosen  by  the  board  from  its  own  number,  in  which  case  the 
governor  is  to  appoint  another  member  to  take  his  place  on 
the  board. 

The  secretary's  duties  are  to  keep  a  record  of  all  transac- 
tions of  the  board  and  an  account  of  its  expenditures;  to 
correspond  with  boards  of  health  in  other  States  and  with 
local  boards  and  health  offices  in  Maryland,  to  secure  an 
interchange  of  information  in  regard  to  sanitation,  and  to 
keep  such  correspondence  on  file;  to  prepare  blank  forms 
and  send  them  to  local  boards  for  reports ;  at  the  request 
of  local  boards  to  visit  local  districts ;  from  time  to  time  and 
when  directed  by  the  governor  or  legislature,  to  make  special 
inspection  of  hospitals,  asylums,  prisons,  etc. ;  at  every  ses- 
sion of  the  legislature  to  submit  to  it  through  the  board  a 
report  on  his  investigations,  with  recommendations ;  when 
requested  by  the  governor  or  other  proper  authorities,  to 
advise  as  to  the  location,  drainage,  water  supply,  excrement 
disposal,  heating,  and  ventilation  of  any  public  institution  or 
building  in  the  State;  to  collect  vital  statistics  and  statistics 
of  disease  and  hygiene  in  the  State,  and  through  an  annual 
report,  or  otherwise  as  the  board  may  direct,  to  disseminate 
information  among  the  people. 

The  board  may  call  public  conferences  of  health  officers, 
or  may  send  delegates  to  any  local,  state,  or  national  con- 
ference of  health  officers.  It  may,  in  case  of  danger  of 
epidemic,  take  any  action  it  sees  fit,  adopting  regulations  the 
violation  of  which  constitutes  a  misdemeanor. 

Before  1910  the  secretary  acted  also  as  registrar  of  vital 
statistics.  These  statistics  he  was  to  tabulate  and  send 
annually  to  the  governor,  the  state  librarian,  the  members  of 
the  General  Assembly,  other  state  boards  of  health,  local 
registrars  of  vital  statistics,  and  elsewhere  at  his  discretion. 
The  local  health  officers  were  local  registrars  of  vital  statis- 
tics (except  where  these  were  already  provided  for  by 
charter  or  ordinance),  and  they  might,  with  the  consent  of 
the  State  Board  of  Health,  appoint  subregistrars  to  collect 


515]  PUBLIC    HEALTH  45 

all  facts  connected  with  births  (parents  of  baby,  nationality, 
attending  physician,  etc.)  and  deaths  (cause,  physician,  etc.)  ; 
and  these  facts  were  to  be  forwarded  once  a  month  or 
oftener.  Since  1910  this  work  has  been  supervised  by  a 
bureau. 

In  1910  the  work  of  the  State  Department  of  Health  was 
organized  into  bureaus,  five  in  number,  as  follows :  Com- 
municable Diseases,  Bacteriology,  Chemistry,  Sanitary  Engi- 
neering, and  Vital  Statistics.  The  secretary  appoints  with 
the  consent  of  the  board  "  men  of  technical  ability  "  as  chiefs 
of  these  bureaus,  at  $1500  to  $2400  (at  the  discretion  of 
the  board),  and  assistant  chiefs  at  $1000  to  $1800.  These 
men  are  removable  by  him  with  the  consent  of  a  majority 
of  the  board. 

Bureau  of  Vital  Statistics. — The  secretary  of  the  board  is 
known  as  "  state  registrar  of  vital  statistics."  As  we  have 
seen,  the  Bureau  of  Vital  Statistics  is  headed  by  a  chief  of 
technical  training.  Until  recently  the  registrars  of  statistics 
throughout  the  State  were  insufficiently  controlled  by  the 
State  Department  of  Health.  In  1912°  this  condition  was 
greatly  improved  by  further  legislation.  The  system  as  it 
now  stands  is  as  follows :  County  health  officers  are  ex  officio 
county  registrars  of  vital  statistics,  and  health  officers  of 
towns  and  cities  are  ex  officio  local  registrars,  except  in  cases 
of  incorporated  cities  or  towns  where,  by  charter  or  ordi- 
nance, the  method  of  appointment  of  a  local  registrar  of  vital 
statistics  is  specifically  designated. 

Each  election  district,  city,  and  incorporated  town  con- 
stitutes a  registration  district,  although  the  state  registrar 
may  combine  two  or  more  districts  in  any  county  into  one 
registration  district  if  the  total  population  of  the  resulting 
district  does  not  exceed  100,000.  Each  county  registrar, 
with  the  advice  and  consent  of  the  local  board  of  health,  ap- 
points a  local  registrar  in  each  district,  who  holds  office 
during  the  term  of  office  of  the  registrar  who  appoints  him, 
receives  death  certificates  and  issues  burial  permits  upon 

6  Laws  1912,  ch.  696. 


46  STATE   ADMINISTRATION    IN    MARYLAND  [516 

them,  receives  birth  certificates,  and  performs  such  other 
services  as  the  local  board  of  health  directs.  He  may  also 
receive  special  orders  from  the  state  registrar ;  for  instance, 
the  regular  period  for  making  returns  is  monthly,  but  "in 
the  event  of  unusual  sickness  or  mortality  or  for  the  purpose 
of  legal,  legislative,  or  other  inquiry,  the  State  Registrar 
may  require  from  any  local  registrar  returns  at  shorter 
intervals."  In  a  number  of  instances  the  county  registrar 
also  acts  as  local  registrar  of  the  district  in  which  he  resides.7 

The  state  registrar  authorizes  the  local  registrars  to  ap- 
point as  many  deputy  local  registrars  as  he  deems  necessary. 
Registrars  throughout  the  State  receive  certain  fees,  'ranging 
from  twenty-five  cents  downward  for  each  registration  of  a 
birth  or  death.  If  any  county,  local,  or  deputy  local  registrar 
refuses  or  neglects  to  execute  his  duties,  the  state  registrar 
may,  with  the  advice  and  consent  of  the  State  Board  of 
Health,  require  him  to  vacate  his  office  and  may  make  a 
new  appointment  to  fill  the  vacancy.  This  has  been  done  in 
a  number  of  instances.  Subordinate  registrars  make  reports 
to  the  state  registrar,  and  also  to  their  immediate  superiors, 
who,  in  turn,  report  to  the  State  Department  of  Health,  that 
is,  to  the  Bureau  of  Vital  Statistics.  This  provides  a  system 
of  checks  by  which  information  can  be  verified.  Notice  of 
births  and  deaths  must  be  given  by  physicians  or  mid-wives 
in  attendance,  householders  and  parents  and  nearest  kin, 
those  in  charge  of  ships  and  houses  of  charity  or  correction, 
and  coroners.  These  vital  statistics  are  collected  by  the 
Bureau  of  Vital  Statistics  of  the  State  Department  of 
Health,  and  are  tabulated  and  published. 

Bureau  of  Communicable  Diseases.8 — The  purposes  of 
this  bureau  are  to  secure  "  accurate  and  complete  "  returns 
of  communicable  diseases  in  Maryland ;  to  examine  into  the 
prevalence  and  causes  of  such  diseases  and  to  devise  means 
for  their  control;  and  to  examine  into  and  investigate  epi- 
demics and  nuisances  and  to  devise  means  for  their  sup- 


7  From  statement  by  member  of  the  State  Department  of  Health. 

8  Laws  1910,  ch.  560,  sec.  2iB. 


517]  PUBLIC    HEALTH  47 

pression.  The  principal  work  of  the  bureau  may  be  said 
to  be  cooperating  with  the  local  health  officers  in  controlling 
the  small  outbreaks  of  disease  which  so  commonly  occur. 
The  bureau  sends  to  the  locality  in  which  such  an  outbreak 
occurs  deputies  or  health  department  inspectors,  who  advise 
and  aid  the  local  officers  in  sanitation  and  disinfection.  The 
locality  pays  the  cost  of  the  measures  taken,  as,  for  instance, 
the  materials  for  disinfection. 

Bureau  of  Bacteriology. — This  bureau9  is  directed  to  in- 
quire into  the  nature,  source,  and  vehicles  of  infectious 
diseases ;  to  establish  a  laboratory ;  and  to  examine  into  and 
analyze  public  and  private  water  supplies,  milk,  and  foods. 
Its  services  are  free  to  all  local  boards  of  health,  to  practis- 
ing physicians  in  the  State,  and  to  the  state  vaccine  agent 
(for  testing  vaccine  virus).  Its  work,  like  that  of  the 
Chemical  Bureau,  is  not  administrative  in  character,  but 
ancillary  to  the  other  branches  of  public  health  work. 

The  bacteriological  laboratory  is  maintained  jointly  with 
Baltimore  City.  The  bacteriologist  of  the  State  Board  of 
Health  is  also  the  city  bacteriologist.  The  cost  of  maintain- 
ing the  laboratory  under  this  arrangement  is  less  than  $3000 
a  year.10 

Bureau  of  Chemistry.*1 — The  functions  of  this  subdivision 
are  defined  as  follows :  to  establish  a  chemical  laboratory ; 
to  inquire  into  the  "nature,  source,  and  vehicles  of  infec- 
tious disease;"  to  inquire  into  the  "nature  of  sewage, 
tradewastes,  and  nuisances ; "  and  to  analyze,  free  of  cost, 
public  and  private  water  supplies,  milk  and  foods,  drinks, 
confectionery,  drugs,  spices,  condiments,  and  so  on. 

Bureau  of  Sanitary  Engineering. — The  work  here  includes 
examination  of  water  supplies  and  sources,  public  and 
private ;  patrol  of  watersheds  and  catchment  basins  of  public 
water  systems ;  examination  of  public  and  private  systems 
of  sewage  and  tradewastes  disposal,  of  offensive  trades  and 
nuisances,  and  of  ventilation,  heating,  and  lighting  of  jails, 

9  Laws  1910.  ch.  560,  sec.  2ic. 

10  Report  of  State  Board  of  Health,  1910. 

11  Laws  1910,  ch.  560,  sec.  210. 


48  STATE   ADMINISTRATION    IN    MARYLAND 

asylums,  and  other  public  institutions;  and  the  making  of 
sanitary  surveys  of  cities  and  towns. 

This  bureau  was  provided  for  in  I9io,12  but  on  account 
of  an  insufficiency  of  funds  was  not  established  until  1912. 
It  is  headed  by  an  engineer.  Thus  engineering  is  brought 
to  the  aid  of  medicine,  a  rather  new  and  rare  occurrence  in 
state  health  departments.  The  work  of  this  bureau  is  just 
getting  under  way,  and  it  suffers  from  the  same  lack  of 
power  of  enforcement  and  control  of  local  officers  that  has 
existed  to  a  greater  or  less  extent  in  other  branches  of  the 
state  health  work.  For  instance,  many  things  are  done, 
either  privately  or  by  local  governments,  in  connection  with 
water  and  sewerage  systems,  with  total  disregard  of  the 
health  department.  But  that  the  courts  are  coming  to  its 
support  is  shown  in  the  recent  Jones  Falls  Valley  Sewerage 
Plant  case. 

LOCAL  BOARDS  AND  GENERAL  HEALTH  PROVISIONS 

The  local  boards  of  health13  are  chosen  locally.  Each 
board  of  county  commissioners  is  the  board  of  health  for 
the  county.  It  is  required  to  appoint  (with  power  of  re- 
moval) a  good  physician  to  be  county  health  officer  and 
secretary  and  executive  officer.14  Of  course,  any  town 
which  chooses  to  do  so  may  establish  a  subsidiary  health 
department.  The  county  boards  have  powers  in  the  locality 
similar  to  the  general  state  powers  of  the  state  board.  The 
law  provides  that  local  health  officers  shall  receive  compensa- 
tion based  upon  proportionate  population,  but  their  fees  and 
charges  are  regulated  by  the  local  board ;  and  poor  compen- 
sation is  one  of  the  factors  in  local  inefficiency  in  public 
health  work. 

The  local  board  takes  cognizance  of  all  unhealthy  condi- 
tions, such  as  pig-pens  and  drains,  within  its  jurisdiction, 

12  Laws  1910,  ch.  560,  sec.  2IE. 

13  Code  1912,  art.  xliii,  sec.  33  ff. 

14  It  has  already  been  mentioned  that  Baltimore  City  has  a  sepa- 
rate and  independent  health  department. 


519]  PUBLIC    HEALTH  49 

and  receives  complaints  from  qualified  medical  practitioners, 
or  two  or  more  persons  affected,  of  public  nuisances  or  in- 
sanitary conditions.  For  some  incomprehensible  reason 
Baltimore  County  is  excluded  from  this  provision.16 

The  local  secretary  makes  an  annual  report  to  the  state 
secretary  of  all  proceedings  of  the  local  board  and  of  such 
information  as  may  be  valuable  for  the  biennial  report  of 
the  state  board.  The  looseness  with  which  this  duty  is 
performed  illustrates  one  of  the  weakest  points  in  the 
Maryland  system. 

INFECTIOUS  DISEASES 

The  control  of  infectious  diseases16  is  part  of  the  work 
of  the  health  officers  of  the  State,  the  central  and  local 
boards  cooperating  in  it.  On  certification  of  a  medical 
practitioner  of  cases  of  infectious  disease,  the  local  health 
authorities  or  justice  of  the  peace  may  order  a  house  and 
its  contents  cleansed  and  disinfected.  If  the  owners  or 
occupants  fail  to  do  this,  they  are  liable  to  fine,  and  the 
officer  may  have  the  house  disinfected  and  recover  the  ex- 
pense from  its  occupants,  unless  they  are  paupers,  in  which 
case  the  city,  town,  or  county  pays.  A  health  officer  or 
justice  of  the  peace  may  order  disinfected  or  destroyed  any 
bedding,  clothing,  or  other  articles  which  have  been  exposed 
to  infection.  Any  person  with  a  dangerous  infectious  dis- 
ease who  has  no  proper  place  to  stay  may  be  sent  to  a 
hospital  by  order  of  a  health  officer  or  justice  of  the  peace 
at  the  expense  of  the  town  or  county.  A  person  with  an 
infectious  disease  must  not  go  about,  and  articles  liable  to 
have  been  infected  must  not  be  exposed  publicly  without 
proper  preliminary  disinfection;  children  infected  with 
dangerous  diseases  must  not  knowingly  be  permitted  to 
enter  other  homes,  theatres,  churches,  and  so  on.  Owners 
of  public  conveyances  are  required  to  disinfect  them,  in  a 

15  Code  1912,  art.  xliii,  sec.  37. 

16  Ibid.,  sec.  41  ff. 

4 


5O  STATE   ADMINISTRATION    IN    MARYLAND  [520 

manner  approved  by  a  health  officer,  after  an  infected  person 
or  body  has  been  in  them ;  they  are  allowed  to  charge  suffi- 
cient for  the  transportation  to  cover  the  cost  of  such  disin- 
fection. Houses  and  rooms  in  which  an  infected  person 
has  been  living  must  not  be  offered  for  rent  without  proper 
disinfection  under  the  approval  and  certificate  of  a  qualified 
medical  practitioner;  nor,  in  showing  for  let  such  houses 
or  rooms,  may  the  infection  be  denied,  upon  questioning, 
unless  the  infected  person  had  moved  out  at  least  six  weeks 
before. 

A  health  officer  or  a  justice  of  the  peace  may  order  a 
body  buried  if  it  is  being  kept  so  as  to  endanger  the  public 
health;  if  relatives  or  friends  fail  to  bury,  the  city,  town, 
or  county  is  to  do  so  at  its  own  expense.  Permits  must  be 
obtained  from  local  health  officers  for  all  interments  and 
disinterments,  regardless  of  infection.17 

Municipal  and  county  authorities  may  provide  hospitals 
or  temporary  places  of  reception  for  the  sick,  or  the  authori- 
ties of  two  or  more  counties  or  communities  may  combine 
and  provide  a  common  hospital.  Patients  in  such  institu- 
tions are  liable  for  charges  within  twelve  months  after  their 
discharge,  unless  they  are  paupers.  On  account  of  the 
liability  to  infection  of  beds  and  mattresses  stuffed  with 
cast-off  clothing,  and  the  like,  all  such  furnishings  are  re- 
quired to  be  labelled,  telling  what  is  contained  in  them. 

The  local  board  of  health  must  be  notified  of  all  cases  of 
dangerous,  contagious  diseases  by  the  householders  and  by 
the  physicians  who  know  of  such  cases.  The  board  is  to 
keep  a  detailed  record  of  all  such  cases,  and  to  give  notice 
of  them  to  the  local  school  board.  It  must  also  notify  the 
State  Department  of  Health,  within  twenty-four  hours.18 

Every  death  from  dangerous,  infectious  disease  must  be 
reported  by  the  physician  or  householder,  with  all  details  of 
age,  sex,  disease,  and  so  on.  Hotel  and  boarding-house 
keepers  and  managers  of  institutions  must  report  all  cases  of 

17  Code  1912,  art.  xliii,  sec.  12. 

18  Ibid.,  sec.  63  ff. 


52 1 ]  PUBLIC    HEALTH  51 

infectious  diseases  on  their  premises  to  the  local  health  officer 
or  the  state  secretary,  who  is  to  take  necessary  measures. 
In  the  absence  of  a  local  board,  the  state  board  makes 
regulations  concerning  nuisances  and  sources  of  contagion. 
The  state  board  may  make  any  necessary  regulations  re- 
specting articles  capable  of  conveying  infection ;  in  such 
cases,  as  in  cases  of  similar  action  by  a  local  board,  persons 
sustaining  damages  thereby  may  receive  compensation  from 
the  state,  county,  or  municipal  authorities,  as  the  case 
may  be. 

In  general  it  may  be  stated  that  in  the  absence  of  a  local 
board,  the  state  board  acts,  and  may  direct  the  state's  at- 
torney to  prosecute  offenders.19  A  law  of  1912  prohibits 
the  use  of  common  public  drinking  cups  in  the  State.20  In 
the  same  year  it  was  provided  that  physicians  must  report 
to  the  health  department  "employment"  diseases  and  ill- 
nesses, with  the  name  of  the  patient,  the  place  of  employ- 
ment, and  so  on.21  But  no  express  provision  is  made  for 
the  investigation  of  such  cases  by  the  health  department. 

Tuberculosis. — The  control  of  this  disease22  is  especially 
placed  in  the  hands  of  the  public  health  authorities,  state  and 
local.  The  state  board  keeps  a  register  of  all  persons  with 
tuberculosis  in  the  State.  Every  person  in  charge  of  any 
state  institution,  such  as  a  school,  hospital,  or  jail,  must 
report  within  forty-eight  hours  every  case  of  tuberculosis 
discovered,  with  all  details  of  the  case.  All  physicians  also 
are  required  to  report  all  cases  of  tuberculosis  coming  to 
their  knowledge.  Any  dwelling  after  occupation  by  a  tuber- 
cular patient  must  be  disinfected  by  the  local  board  ;  and  any 
person  knowing  of  the  vacating  of  such  a  dwelling  is  re- 
quired to  give  notice  to  the  board ;  apartments  must  not  be 
relet  until  after  such  disinfection.  Tubercular  patients  are 
prohibited  from  spitting  in  houses  occupied  by  others,  and 
complaints  of  this  may  be  made  to  a  health  officer. 


19  Code  1912,  art.  xliii,  sec.  97  ff. 

20  Laws  1912,  ch.  156. 

21  Ibid.,  ch.  165. 

22  Code  1912,  art.  xliii,  sec.  84  ff. 


52  STATE   ADMINISTRATION    IN    MARYLAND  [522 

The  attending  physician  in  a  case  of  tuberculosis  is  to 
take  measures  for  the  safety  of  persons  occupying  the  same 
house.  If  he  fails  to  do  so,  the  duty  devolves  upon  the 
local  board  of  health,  which  in  all  events  cooperates  with 
him  and  gives  orders  to  him.  The  physician  is  furnished 
with  directions  concerning  precautions  to  be  taken  in  tuber- 
culosis, and  directions  also  to  be  given  to  the  patient ;  he  is 
also  furnished  with  a  list  of  prophylactic  supplies  to  be  had 
free  of  cost  from  the  local  board  and  his  requisition  for 
these  is  honored  by  the  local  board.  If  the  physician  carries 
out  the  orders  properly,  he  receives  a  fee  of  one  dollar  and 
a  half  a  case.  For  such  measures  an  annual  sum  of  $5000 
was  appropriated  until  1912,  when  this  was  made  $io,ooo,23 
to  be  drawn  upon  by  the  state  board  for  the  use  of  the  local 
boards.  The  state  board  supplies  the  local  boards  with  the 
literature  and  the  medical  supplies  mentioned  above. 

MIDWIFERY24 

By  law  of  iSgS25  "every  midwife,  obstetrical  nurse,  or 
other  person,  not  a  legally  qualified  physician,  attending  for 
pay  or  hire,  upon  a  lying-in  woman,  or  woman  in  childbed," 
was  merely  required  to  "  send  his  or  her  name  and  address 
to  be  registered  in  the  office  of  the  registrar  of  vital  statistics 
for  the  city,  town,  or  county  "  in  which  he  or  she  resided ; 
and  in  case  the  patient  had  fever,  the  midwife  was  to  notify 
the  local  health  officer  and  refrain  from  attendance  upon 
any  other  woman  until  granted  permission  by  the  health 
officer  to  resume  practice. 

In  1910  a  law  was  passed26  more  strictly  regulating  the 
practice  of  midwifery,  and  this  regulation,  unlike  that  of 
other  professions  concerned  with  the  public  health  (such 
as  medicine,  with  its  special  licensing  board),  is  placed  in 
the  hands  of  the  public  health  department.  Examinations 
for  the  profession  are  now  required. 

23  Laws  1912,  ch.  512. 

24  Code  1912,  art.  xliii,  sec.  68  ff. 

25  Ch.  436,  sec.  34F. 

26  Laws  1910,  ch.  722,  sec.  55A  ff. 


523]  PUBLIC  HEALTH  53 

PURE  FOOD  AND  DRUGS 

In  1890,"  igo2,28  and  iox)429  pure  food  and  drugs  laws 
were  enacted.  In  I9io30  they  were  greatly  added  to  and 
improved  by  provisions  modelled  to  a  large  extent  on  the 
United  States  pure  food  and  drugs  laws.  These  final  pro- 
visions went  into  full  force  January  i,  1911.  Their  enforce- 
ment constitutes  another  branch  of  the  work  of  the  State 
Health  Department.  Their  substance  is  as  follows:  The 
sale  of  any  corrupted,  adulterated,  or  unwholesome  food 
or  drink  is  prohibited.  The  State  Board  of  Health  is 
authorized  to  investigate  such  articles,  make  chemical 
analyses,  forbid  their  sale,  or  cause  them  to  be  destroyed; 
its  inspectors  are  authorized  to  inspect  food  at  all  times. 
It  is  the  duty  of  the  state  prosecuting  attorney  to  attend  to 
the  prosecution  of  all  complaints  concerning  unwholesome 
food  and  drink.  Twenty-five  thousand  dollars  is  annually 
appropriated  for  the  inspection  and  analysis  of  such  articles 
by  the  State  Board  of  Health.  There  are  special  provisions 
regarding  beer,  meat,  vinegar,  and  so  on,  and  for  the  execu- 
tion of  some  of  these  provisions  additional  sums  are  ap- 
propriated. 

State  Food  and  Drugs  Commissioner. — This  official  was 
provided  for  in  1910,  to  be  appointed  by  the  State  Board  of 
Health,  and  to  receive  $2500  per  annum.  For  the  salary 
of  the  commissioner  and  the  expenses  of  his  office  and  pay- 
ment of  his  employes,  $15,000  is  annually  appropriated,  to  be 
paid  on  the  authorization  of  the  State  Board  of  Health. 
The  duty  of  the  commissioner  is  to  administer  the  food  and 
drugs  laws  under  the  direction  of  the  board.  As  far  as 
is  practicable  the  rules  and  regulations  adopted  by  the 
health  board  for  the  carrying  out  of  the  food  and  drugs  laws 
are  to  be  the  same  as  the  rules  and  regulations  adopted  by 
the  federal  government  for  the  execution  of  the  United 

27  Laws  1890,  ch.  604,  sec.  52  ff. 

28  Laws  1902,  ch.  606,  sees.  SIA,  5$A. 

29  Laws  1904,  ch.  378,  sec.  SIB  ;  ch.  653,  sec.  SIA  ff. 

30  Laws  1910,  ch.  156,  sees.  I4O-A  to  140-0  inclusive. 


54  STATE   ADMINISTRATION    IN    MARYLAND  [524 

States  Food  and  Drugs  Act  of  January  30,  1906.  The 
board  is  to  send  copies  of  these  state  laws  to  manufacturers, 
wholesalers,  and  retailers  of  Maryland. 

Adulteration,  imitation,  misbranding,  and  wrong  or  in- 
sufficient labelling  of  drugs  and  food,  including  water, 
drinks,  confectionery,  and  condiments,  are  prohibited.  The 
drugs  standards  are  based  on  the  United  States  Pharma- 
copoeia. In  case  an  article  has  not  been  so  standardized, 
the  standards  adopted  by  the  United  States  Department  of 
Agriculture  are  used.  The  quantity  of  certain  dangerous 
drugs,  like  opium,  contained  in  an  article  must  be  printed  on 
the  label.  A  special  Maryland  standard  is  set  for  ice  cream. 
No  dealer,  however,  may  be  prosecuted  if  he  can  show  a 
guaranty  of  the  goods  issued  by  a  Maryland  wholesaler 
from  whom  he  obtained  the  goods.  When,  after  examina- 
tion and  analysis  of  an  article  in  the  laboratories  of  the  State 
Board  of  Health,  under  the  supervision  of  the  food  and 
drugs  commissioner,  it  is  found  to  be  adulterated  or  mis- 
branded,  notification  and  hearing  is  given,  and  then,  if  it  is 
necessary,  prosecution  is  begun  by  the  state's  attorney. 

The  operations  of  this  department  began  in  September, 
1910.  By  the  end  of  1911,  4136  villages,  towns,  and  cities 
had  been  visited ;  inspectors  had  covered  941 1  factories,  can- 
neries, and  stores;  140  lots  of  food  and  50  lots  of  drugs 
had  been  condemned  and  destroyed  because  unfit  for  use; 
and  2300  samples  of  food  and  drugs  had  been  purchased 
and  sent  to  the  laboratories  for  analysis  and  reports  of  the 
analyses  had  been  made.31  This  shows  the  activity  of  a 
branch  of  the  public  health  work  on  the  importance  and 
value  of  which  no  comment  is  needed. 

CRITICISM 

The  Maryland  State  Board  of  Health  is  excellently  or- 
ganized and  is  doing  good  work.  Its  president  is  one  of 
the  best  known  medical  scientists  in  the  country.  It  ex- 

31  Report  1912. 


525]  PUBLIC    HEALTH  55 

hibits,  however,  a  deficiency  similar  to  that  which  is  found 
in  other  branches  of  the  State's  administration,  that  is, 
local  inefficiency,  disintegration,  and  lack  of  central  power. 
This  is  evidenced  in  the  performance  of  their  duties  by  the 
local  boards  of  health  and  the  local  secretaries.  In  the 
report  of  January  10,  1912,  the  state  secretary  says :  "  There 
is  ...  I  am  glad  to  note,  a  growing  tendency  to  reappoint 
efficient  and  capable  men,  irrespective  of  personal  or  political 
considerations,  and  I  believe  there  is  a  strong  sentiment, 
not  only  among  the  medical  profession  who  should  be  leaders 
in  a  movement  of  this  kind,  but  among  the  general  public, 
to  remove  the  office  from  the  influence  of  political  consider- 
ation, so  far  as  it  is  now  possible  to  do  so."  However,  in 
the  same  report  he  says : 

During  1909  there  were  twenty-three  county  health  officers  in 
Maryland,  and  also  health  officers  in  eighteen  incorporated  towns. 
All  local  health  officers  are  secretaries  of  local  boards  of  health, 
with  the  exception  of  the  Commissioner  of  Health  of  Baltimore 
City.  Both  the  county  and  town  health  officers  are,  as  a  class,  very 
greatly  underpaid,  their  salaries  ranging  from  $150  up  to  $1,000. 
The  highest  paid  local  health  officer  is  the  Health  Officer  of  Balti- 
more County,  who  receives  a  salary  of  $1,000  per  annum,  and  is  also 
allowed  an  office  and  a  clerk.  The  pay  is,  of  course,  wholly  insuffi- 
cient to  enable  these  officers  to  live,  and  they  are  practically  all 
dependent  upon  their  private  practice. 

The  efficiency  of  sanitary  administration  must  evidently  be  greatly 
dependent  upon  the  character  of  work  done  by  local  boards  of 
health,  and  it  is  perfectly  evident  that  these  local  boards  can  not 
operate  without  sufficient  health  officers,  and  it  is  manifestly  im- 
possible to  secure  efficient  service  for  the  miserable  pay  given  by  the 
average  county  or  town.  Some  of  these  officers,  however,  have 
given  very  valuable  service  to  the  State,  even  under  the  most  adverse 
conditions.  The  low  scale  of  compensation  is  probably  the  most 
serious  obstacle  to  efficiency  in  local  administration,  but  another 
obstacle  of  almost  equal  importance  is  frequent  rotation  in  office 
on  account  of  political  changes.  Under  the  existing  conditions  in 
this  State,  the  local  health  officers  take  up  the  duties  of  their  office 
wholly  untrained,  and  those  who  are  most  capable  become  sufficiently 
familiar  with  their  work  about  the  end  of  their  two  years'  term  to 
be  of  real  value  to  their  communities,  and  it  frequently  happens 
that  just  about  the  time  when  a  local  health  officer  has  reached  the 
stage  when  he  has  become  a  good  public  servant,  capable  of  making 
a  record  in  public  health  work,  some  political  change  throws  him 
out  of  office  and  all  of  his  training  and  experience  is  lost  to  the 
public. 

Irrespective  of  other  considerations,  I  believe  it  very  desirable  to 
increase  the  term  of  health  officers  to  a  period  of  six  years  or 


56  STATE   ADMINISTRATION    IN    MARYLAND  [5  26 

longer  and  provide  a  salary  commensurate  with  the  importance  of 
the  work. 

While  not  mandatory  under  our  statutes  and  not  as  a  rule  re- 
quired by  the  various  town  charters,  city  and  town  health  officers 
have  been  requested  to  furnish  reports.  .  .  .  Reports  were  furnished 
by  the  health  officers  of  seven  towns  and  eleven  town  health  officers 
furnished  no  reports. 

Under  the  provisions  of  Section  28,  of  Article  43,  of  the  Code  of 
Public  General  Laws  of  Maryland,  county  health  officers  are  re- 
quired to  report  to  the  Secretary  of  the  State  Board  of  Health 
annually  upon  the  sanitary  conditions  of  their  counties  and  upon 
the  administration  of  their  office.  ...  It  will  be  noted  that  thirteen 
of  the  twenty-three  health  officers  did  not  furnish  reports  as  re- 
quired by  law. 

Considerable  difficulty  was  experienced  with  St.  Mary's  County 
during  1909  in  compelling  the  County  Commissioners  to  execute  the 
mandatory  provisions  of  ...  Chapter  4I332  of  the  Acts  of  the  Gen- 
eral Assembly  of  1904,  requiring  the  disinfection  of  premises  va- 
cated by  the  death  or  removal  of  tuberculosis  occupants  and  it 
became  necessary  to  threaten  mandamus  proceedings  against  the 
county  in  order  to  compel  it  to  comply  with  the  law.  A  similar 
difficulty  in  Allegany  County  was  promptly  adjusted  by  the  County 
Commissioners. 

The  same  trouble  has  existed  with  the  local  registrars 
of  vital  statistics,  but  now  is  almost  completely  remedied  by 
the  provisions  of  the  law  of  1912,  which  we  have  already 
noted.  The  new  and  important  work  of  the  Bureau  of 
Sanitary  Engineering  is  also  hampered  by  difficulties  with 
localities.33  The  remedy  for  the  lack  of  control  of  local 
health  officers  is,  of  course,  to  make  all  health  officers  state 
officials  in  the  fullest  sense  of  the  term,  subject  to  the  orders 
of  their  superiors. 

There  may  also  be  suggested  as  desirable  a  closer  correla- 
tion of  the  various  branches  of  state  work  concerned  with 
the  public  health.  The  examining  boards  for  the  various 
professions  are  perhaps  best  constituted  as  they  are,  inde- 
pendent and  composed  of  members  who  come  from  those 
professions.  There  might  be  a  closer  connection  between 
the  department  of  health,  one  of  whose  functions  is  to  pre- 
vent tuberculosis,  and  the  Maryland  Tuberculosis  Sana- 
torium, whose  purpose  is  to  cure  it.  By  such  correlation, 

82  Sec.  34J- 

33  For  an  illustration  of  this  see  the  controversy  arising  out  of 
the  purchase  of  the  Jones  Falls  Valley  sewerage  plant  by  the  com- 
missioners of  Baltimore  County. 


52/j  PUBLIC    HEALTH  57 

a  saving  in  expense  in  administration  would  be  effected  and 
divided  efforts  would  be  united  and  made  more  harmonious 
and  efficient. 

U.  S.  HEALTH  DEPARTMENT  REVIEW 

Since  the  writing  of  this  chapter,  the  federal  government 
has  made  a  report  on  the  Maryland  health  service.  This 
review,  which  was  made  public  in  Washington  on  January 
29,  1914,  is  the  result  of  an  investigation  of  Maryland  public 
health  administration  by  the  federal  Public  Health  Service, 
and  is  the  first  of  a  series  of  such  studies.  "  The  work  was 
begun  last  July  and  continued  without  interruption  until 
now.  The  work  of  the  state  board  was  carefully  investi- 
gated in  Baltimore  and  in  every  county."  The  report  is 
embodied  in  a  pamphlet  of  nearly  one  hundred  pages,  in- 
cluding many  tables.  Surgeon  Fox  finds  much  to  praise, 
and  praises  unstintingly  where  praise  is  deserved.  He  finds, 
on  the  other  hand,  some  features  of  the  work  that  might 
be  improved,  and  some  faults  to  be  remedied.  The  results 
of  his  investigation  are  embodied  in  a  series  of  recom- 
mendations. 

Sanitary  Districts. — These  recommendations  include  the  division  of 
the  State  into  ten  sanitary  districts,  with  a  physician  in  charge  of 
each  district,  who  shall  be  given  an  office  and  an  adequate  number 
of  assistants,  including  inspectors,  nurses  and  a  clerk.  This  physi- 
cian shall  be  paid  by  the  State  and  shall  not  practice  medicine  or 
engage  in  any  private  business.  His  duties  shall  include  super- 
vision of  the  work  of  all  county,  city,  or  town  health  officials,  the 
enforcement  of  the  law  regarding  the  notification  of  cases  of  dis- 
ease; inspection  of  dairies,  canneries,  and  all  places  of  business  or 
manufacture  within  his  jurisdiction  ;  the  inspection  of  county  schools 
and  school  children ;  the  investigation  of  nuisances  and  the  abate- 
ment of  the  same ;  investigation  of  cases  of  sickness  and  institution 
of  measures  for  the  control  of  disease;  the  enforcement  of  the  vac- 
cination act;  the  keeping  of  complete  records  of  transactions  and 
forwarding  all  necessary  reports  to  the  State  Department  of  Health ; 
the  delivery  of  public  lectures  throughout  his  district;  the  collection 
of  samples  for  analysis ;  the  enforcement  of  the  laws  relating  to  the 
registration  of  births  and  deaths ;  and  the  performance  of  all  other 
duties  that  may  be  required  of  him  by  the  state  department  of  health. 

Water  and  Sewerage. — Another  recommendation  is  that  a  com- 
prehensive law  be  enacted  making  it  compulsory  on  the  part  of  all 
persons  interested  to  have  plans  for  proposed  installations  of  water 
supplies,  sewerage  or  refuse-disposal  systems  approved  by  the  State 


$8  STATE   ADMINISTRATION    IN    MARYLAND 

Department  of  Health;  that  the  State  Department  of  Health  be 
empowered  to  require  any  changes  or  extensions  in  already  existing 
installations  that  may  be  necessary  to  insure  pure  water  supplies 
or  proper  sewerage  or  refuse-disposal  systems,  or  to  order  the  instal- 
lation of  new  water  supply  and  sewerage  or  refuse-disposal  systems 
in  the  absence  of  same,  and  giving  the  State  Department  of  Health 
the  power  to  close  or  to  prevent  the  use  of  water  from  any  well, 
spring,  etc.,  that,  in  its  opinion,  is  dangerous  to  health,  or  to  require 
the  filling  or  draining  of  places  where  there  is  any  accumulation  of 
stagnant  water,  breeding  of  mosquitoes  or  other  nuisance. 

That  the  State  be  divided  into  at  least  four  districts,  in  each  of 
which  shall  be  placed  a  representative  of  the  State  Department,  to 
be  known  as  district  engineer,  and  to  come  under  the  supervision  of 
the  Bureau  of  Sanitary  Engineering,  and  to  be  a  graduate  engineer 
or  sanitary  engineer. 

An  appropriation  of  at  least  $50,000  is  recommended  for  this 
reorganization  and  not  less  than  $15,000  for  the  Bureau  of  Sani- 
tary Engineering. 

New  Laws  Proposed. — Other  recommendations  are :  that  a  state- 
wide campaign  be  carried  on  against  typhoid  fever;  that  investi- 
gative studies  be  carried  on  in  the  state  relative  to  pellagra,  tra- 
choma, hookworm,  infantile  morbidity  and  mortality,  and  malaria; 
that  the  vaccine  agency  be  abolished  and  its  functions  given  to  the 
Department  of  Health,  and  the  Vaccination  Act  be  amended  so  as 
to  make  it  stronger  and  modern;  that  laws  be  enacted  providing 
for  the  maintenance  of  sanitation  of  factories,  canneries,  stables, 
hotels,  restaurants,  etc. ;  that  the  maintenance  of  the  sanitation  of 
dairies  and  the  control  of  milk  supplies  be  taken  out  of  the  hands 
of  the  State  Live  Stock  Sanitary  Board  and  placed  in  the  hands  of 
the  State  Department  of  Health,  and  that  more  adequate  laws  and 
regulations  be  made  to  cover  the  subject;  that  a  law  be  enacted 
requiring  the  reporting  of  all  marriages  and  divorces  to  the  State 
Department  of  Health;  that  a  system  of  school  inspections  be  in- 
augurated and  carried  on  throughout  the  State. 

Since  the  study  of  the  Department  of  Health  was  begun  certain 
of  the  matters  recommended  in  this  report  have  already  been  acted 
upon  by  the  state  board.  Bills  have  been  prepared  for  introduction 
into  the  legislature  relating  to  an  increase  in  the  secretary's  salary, 
the  maintenance  of  sanitation  in  all  places  where  food  products  are 
manufactured  or  sold,  the  formation  of  an  adequate,  distinct  field 
force,  and  a  comprehensive  control  of  water  supplies  and  sewerage 
systems.  In  addition,  the  board  has  decided  on  a  standard  working 
day  of  seven  hours,  a  new  birth  certificate  has  been  adopted,  and 
the  City  of  Baltimore  is  now  sending  its  daily  morbidity  report 
sheets  to  the  State  Department  of  Health  every  seven  days.3* 

On  February  10,  1914,  a  bill  was  introduced  in  the  State 
Senate  which  proposed  to  divide  the  State  into  the  ten  recom- 
mended sanitary  districts,  and  incidentally  to  increase  the 
salary  of  the  state  secretary  $500 ;  and  the  prospects  of  im- 
proved public  health  legislation  for  Maryland  seem  some- 
what favorable. 

34  Baltimore  American,  January  29,  1914. 


CHAPTER   III 
CHARITIES  AND  CORRECTIONS 

In  this  chapter1  will  be  treated  three  branches  of  admin- 
istration, all  of  them  closely  similar,  yet  all  of  them  distinct : 
charities,  including  hospitals;  care  of  the  insane;  and  cor- 
rections, including  the  Penitentiary,  the  House  of  Correction, 
and  various  reformatories. 

CHARITIES 

There  is  no  uniform  or  centralized  system  of  charities  in 
the  State.  Assistance  is  given  to  benevolent  institutions  in 
a  haphazard,  irregular  way,  although  a  Board  of  State  Aid 
and  Charities  with  incomplete  powers  has  a  limited  super- 
vision of  these  institutions. 

Almshouses  and  Trustees  of  the  Poor. — There  are  alms- 
houses  and  trustees  of  the  poor2  in  every  county  and  in 
Baltimore  City  which  come  under  state  law.  In  1906  the 
name  of  these  "  institutions  for  the  care  and  custody  of  the 
indigent  poor "  was  changed  to  "  county  homes."  The 
trustees  of  the  poor  are  county  (or  city)  officers.  It  is 
unlawful  for  them  to  retain  in  a  county  home  for  a  period 
longer  than  ninety  days  any  child  between  three  and  six- 
teen years  of  age,  unless  such  child  is  an  unteachable  idiot 
or  is  otherwise  incapacitated  for  labor  or  service.  Such 

1  It  should  be  noted  that  to  some  extent  in  this  chapter  references, 
especially  those  concerning  correctional  institutions,  are  made  to  the 
Code  of  Public  General  Laws  of  1904  (Ppe's  Code)  on  account  of 
the  fact  that  the  Code  of  1912  is  divided  into  "  Civil "  and  "  Crimi- 
nal "  and  the  Criminal  Code  is  not  yet  published.     The  author  was 
informed  by  Mr.  William  H.  Davenport,  who  is  secretary  of  the 
Board  of  State  Aid  and  Charities,  that  this  method  is  justifiable  for 
the  reason  that  the  organization  of  institutions  like  the  Peniten- 
tiary and  the  House  of  Correction  has  not  been  changed  materially 
since  1904. 

2  Code  1912,  art.  iv,  sec.  i  ff. 

59 


6O  STATE   ADMINISTRATION    IN    MARYLAND  [530 

children  are  to  be  placed  in  respectable  families  or  in  educa- 
tional institutions  or  homes  for  children.  It  is  the  duty  of 
the  trustees  of  the  poor,  personally  or  through  some  ap- 
pointed person,  to  visit  children  so  placed  at  least  every 
six  months,  and  to  make  inquiry  into  their  treatment  and 
welfare. 

Board  of  State  Aid  and  Charities. — A  Board  of  State  Aid 
and  Charities  was  instituted  in  IQOO.3  It  is  an  unpaid 
board,  composed  of  seven  members,  appointed  for  terms 
of  two  years,  by  the  governor;  at  least  two  of  them  must 
be  from  the  counties,  and  not  more  than  four  of  them  may 
be  reappointed.  They  appoint  a  salaried  secretary.  The 
board  is  given  the  power  of  investigating  the  condition  and 
management  of  all  public  or  other  charitable  institutions 
receiving  state  aid.  It  reports  to  and  makes  recommenda- 
tions to  the  General  Assembly.  The  secretary  conducts  the 
actual  work  of  investigation  and  is  subject  to  orders  from 
the  Senate  Finance  Committee  and  the  Ways  and  Means 
Committee  of  the  House  of  Delegates.  Pauper  and 
vagrant  children  are  not  to  be  brought  into  the  State  with- 
out the  consent  of  this  board.  With  only  powers  of  in- 
vestigation and  advice,  it  will  be  seen  that  this  body  in  no 
way  approaches  an  organ  of  centralization  and  coordina- 
tion of  benevolent  efforts  in  the  State. 

We  shall  examine  in  detail,  first,  the  work  of  this  board 
and,  after  that,  the  various  groups  of  institutions  which  are 
under  its  supervision.  The  present  board  seems  to  be  well 
constituted,  free  from  political  influence,  and  energetic  in 
doing  the  best  within  its  powers.  It  recently  issued  the 
Seventh  Biennial  Report  of  the  Board  of  State  Aid  and 
Charities,  which  includes  a  complete  account  of  all  the 
various  branches  of  state  charity  in  Maryland,  based  on 
a  new  and  thorough  investigation,  and  much  of  the  in- 
formation in  the  following  pages  is  obtained  from  this 
report.* 

3  Laws  1900,  ch.  679. 

4  Where  no   reference  is   specifically  made,   this   source  will  be 
implied. 


CHARITIES   AND    CORRECTIONS  6 1 

Organisation  of  the  New  Board. — The  present  Board  of 
State  Aid  and  Charities  was  appointed  in  April,  1912,  and 
organized  May  27,  1912.  Section  4  of  Article  88A  of  the 
Code  of  Public  General  Laws,  which  outlines  the  duties  of 
the  board,  reads  in  part  as  follows: 

It  shall  investigate  and  consider  the  whole  system  of  state  aid  to 
public  and  other  institutions  receiving  state  aid  in  this  State.  To 
this  end  it  shall  have  power  to  make  an  investigation  at  any  time 
into  the  condition  and  management  of  any  institution  financially 
aided  by  this  State,  and  may  demand  such  information,  statistical  or 
otherwise,  as  it  may  desire  from  the  officers,  directors  or  employees 
of  such  institution,  or  it  may  direct  such  an  investigation  to  be 
made  by  a  committee  of  its  members  or  by  its  secretary;  within 
one  week  after  the  convening  of  every  regular  session  of  the  Gen- 
eral Assembly  it  shall  furnish  to  the  Chairman  of  the  Finance  Com- 
mittee of  the  Senate,  and  of  the  Ways  and  Means  Committee  of 
the  House  of  Delegates,  a  printed  report  of  the  condition  of  all  the 
institutions  receiving  financial  aid  from  the  State  and  shall  further 
make  such  recommendations  as  to  the  appropriations  for  such  in- 
stitutions as  may  seem  wise  and  for  the  best  interest  of  this  State, 
giving  the  reasons  for  such  recommendations  as  fully  as  may  be 
practicable. 

There  are  at  the  present  time  one  hundred  and  twenty- 
two  institutions  receiving  money  from  the  State.  These 
institutions  are  scattered  from  one  end  of  the  State  to  the 
other,  and  range  from  a  day  nursery  with  nine  or  ten 
children  in  attendance  up  to  the  State  Hospital  for  the 
Insane  with  1500  patients. 

The  work  of  the  board  has  called  for  the  supervision  ot 
an  expenditure  of  some  $4,000,000  of  state  money  during 
the  last  two  years,  and  the  probabilities  are  that  this  sum 
will  increase  rather  than  diminish.  The  State  last  year 
appropriated  $1,389,187.72  for  the  maintenance  of  chari- 
table institutions  alone.  This  sum  is  equivalent  to  about 
fourteen  cents  on  the  tax  rate  with  the  present  taxable 
basis,  or  a  little  less  than  half  the  State's  income  from 
direct  taxes. 

Although  this  board  is  given  authority  to  investigate  in- 
stitutions, it  is  not  given  the  power  to  summon  witnesses 
or  administer  oaths.  It  is  also  charged  with  the  duty  of 
recommending  a  system  for  state  aid,  and  yet  it  is  given 


62  STATE   ADMINISTRATION    IN    MARYLAND  [532 

no  organic  connection  with  the  other  departments  of  the 
state  government,  knowledge  of  whose  workings  is  abso- 
lutely essential  to  any  proper  system.  Furthermore,  just 
what  organizations  come  under  the  jurisdiction  of  the 
board  is  doubtful  under  the  present  law,  and  there  is  no 
definite  statement  as  to  where  its  duties  stop  and  those  of 
other  departments  of  the  state  government,  such  as  the 
Board  of  Education,  begin. 

Principles  on  -which  State  Aid  Should  be  Given. — There 
apparently  has  never  been  any  systematic  basis  for  the  state 
appropriations  for  charitable  purposes.  This  fact  was  fully 
recognized  by  the  previous  boards,  and  they  proposed  cer- 
tain legislation  establishing  such  a  basis,  which,  however, 
was  not  passed. 

After  a  general  review  of  the  problem  of  state  aid  to  chari- 
table and  correctional  institutions,  the  board  in  its  Seventh 
Biennial  Report  lays  down  the  following  principles  as  funda- 
mental: that  no  appropriation  should  be  granted  for  any 
purpose  unless  either  the  community  is  thereby  protected 
from  danger  or  harm  or  the  work  is  necessary  to  guarantee 
the  future  welfare  of  the  State ;  that  until  the  State  is  in  a 
position  to  perform  a  service  for  all  of  a  certain  class  of 
people,  it  has  no  right  to  perform  it  for  special  individuals 
or  arbitrary  groupings  of  individuals;  that  it  owes  to  the 
people  for  whom  the  service  is  directly  performed  a  duty  to 
see  that  they  get  the  very  best  treatment  it  can  give  to  them ; 
that  it  is  under  obligation  to  the  taxpayer  to  see  that  these 
services  are  secured  for  the  least  amount  of  money,  whether 
the  instrumentality  used  be  public  or  private.  In  order  to 
carry  out  these  principles,  the  report  continues,  it  will  be 
necessary  that  the  lump  system  of  appropriations  be  done 
away  with,  and  the  State  should  enter  into  contracts  with 
institutions  doing  work  for  it  by  which  these  institutions 
will  be  paid  on  a  per  capita  basis  according  to  the  quality  and 
quantity  of  work  they  actually  do.  We  now  have  on  our 
statute  books  a  section  which  prohibits  the  use  of  state 
money  for  building  purposes  unless  it  is  specifically  appro- 


533]  CHARITIES   AND    CORRECTIONS  63 

priated  for  this  purpose.  The  State  should  go  further  and 
require  that  the  title  of  all  buildings  provided  for  from  state 
appropriations  should  vest  in  the  State,  or  that  the  State 
should  be  given  a  lien  which  will  prevent  the  property  from 
ever  being  used  for  any  purpose  other  than  that  for  which 
the  money  is  appropriated. 

State  Aided  Institutions  Under  the  Supervision  of  the 
Board. — The  general  hospitals  constitute  one  of  the  most 
complex  problems  with  which  the  Board  of  State  Aid  and 
Charities  has  to  deal.  There  are  twenty-four  of  these  in- 
stitutions to  which  the  State  gives  aid,  located  so  as  to  cover 
practically  the  entire  State,  and  ranging  in  size  from  the 
hospital  at  Leonardtown  with  about  fifteen  beds  to  the 
Mercy  Hospital  in  Baltimore  with  its  average  of  three  hun- 
dred patients.  Two  of  these  hospitals  are  state  institutions, 
namely,  the  Miners'  Hospital  at  Frostburg  and  the  Home 
and  Infirmary  of  Western  Maryland  at  Cumberland.  The 
others  are  private  institutions  over  which  the  State  has  abso- 
lutely no  control.  Some  of  these  cater  largely*  to  the 
wealthy,  and  provide  a  very  much  more  expensive  grade  of 
service  than  is  needed  by  the  people  generally.  Further- 
more, the  standards  of  efficiency  in  these  hospitals  vary  from 
the  best  to  some  that  the  board  considers  hardly  passable. 
The  financial  control  and  administration  of  some  are  exceed- 
ingly good,  while  in  others  there  is  evidence  of  ex- 
travagance.5 

The  Board  of  State  Aid  and  Charities  is  of  the  opinion 
that  at  least  one  half  of  the  cost  of  treating  patients  in 
hospitals  should  be  borne  by  the  local  communities,  and  in  a 
bill,  tentatively  framed,  it  has  provided  that  one  half  the 
cost  of  the  hospital  treatment  be  charged  to  the  county  or 
the  city,  as  the  case  may  be,  from  which  the  patient  comes. 

Consideration  of  the  problems  presented  by  the  special 
hospitals  may  be  divided  into  three  classes:  first,  problems 

5  The  problems  connected  with  the  proper  adjustment  of  financial 
arrangements  between  the  State,  the  City  of  Baltimore,  and  the  pri- 
vately administered  hospitals  are  discussed  in  detail  in  the  Seventh 
Biennial  Report. 


64  STATE   ADMINISTRATION    IN    MARYLAND  [534 

connected  with  the  eye,  ear,  nose,  and  throat  hospitals; 
second,  those  related  to  the  hospitals  for  crippled  children ; 
third,  those  incident  to  the  proper  care  of  sufferers  from 
tuberculosis. 

Taking  up  first  the  eye,  ear,  nose,  and  throat  hospitals, 
we  find  that  there  are  only  two  institutions  in  this  class  re- 
ceiving state  aid,  namely,  the  Baltimore  Ear,  Eye  and  Throat 
Charity  Hospital,  and  the  South  Baltimore  Ear,  Eye,  Nose 
and  Throat  Charity  Hospital.  These  institutions  are  appar- 
ently doing  good  work.  The  Board  of  State  Aid  and  Chari- 
ties considers  that  the  work  of  the  Baltimore  Ear,  Eye,  Nose 
and  Throat  Charity  Hospital  is  one  which,  as  long  as  the 
policy  of  subsidies  to  private  institutions  is  continued,  should 
find  a  place  on  the  list  of  the  state  appropriations. 

There  are  two  special  hospitals  dealing  with  the  care  of 
crippled  children,  namely,  the  James  Lawrence  Kernan 
Hospital  and  the  Children's  Hospital  School.  Both  of  these 
institutions  are  doing  excellent  work.  The  Children's 
Hospital  School  is  located  in  a  new  building  well  equipped 
for  the  purpose,  and  has  the  services  of  nurses  from  the 
Church  Home  and  Infirmary.  Its  per  capita  cost  shows  the 
result  of  careful  management  and  of  equipment  suited  to  its 
purpose. 

By  far  the  greatest  problem  presented  under  the  head  of 
special  hospitals,  however,  is  that  connected  with  the  state 
care  of  sufferers  from  tuberculosis.  The  fact  that  about  ten 
per  cent  of  all  the  deaths  in  1913  were  due  to  tuberculosis, 
and  that  this  percentage  is  somewhat  lower  than  it  had  been 
previously,  is  sufficient  to  make  this  a  subject  for  most 
careful  consideration. 

In  1902  and  1904"  the  governor  was  authorized  to  appoint 
a  tuberculosis  commission,  consisting  of  five  members,  three 
of  whom  had  to  be  physicians.  They  were  to  investigate 
tuberculosis  in  Maryland  and  the  means  of  controlling  it, 
and  were  to  study  the  question  of  establishing  a  tuberculosis 

•  Laws  1902,  ch.  451 ;  1904,  ch.  476. 


535]  CHARITIES   AND   CORRECTIONS  65 

sanatorium,  and  to  report  concerning  its  construction,  cost, 
equipment,  location,  and  so  on.  The  members  were  to  serve 
for  terms  of  two  years,  and  without  pay  except  expenses. 
Unlike  practically  all  other  commissions  and  boards  in  Mary- 
land administration,  this  commission  was  made  self-per- 
petuating; the  members  were  to  fill  vacancies  by  a  majority 
vote  of  their  own  number.  They  were  required  to  make  a 
report  of  their  investigations  by  January,  1906.  All  hos- 
pitals and  similar  institutions  receiving  state  aid  were  re- 
quired to  report  to  the  commission  facts  which  might  aid  it 
in  its  investigation,  as,  for  example,  every  case  of  tuber- 
culosis, on  blanks  furnished  by  the  commission.  Since 
i8927  an  annual  appropriation  of  $2000  had  been  made  for 
the  investigation  of  tuberculosis,  and  this  was  applied  to  this 
work. 

The  work  of  this  commission  in  investigating  tuberculosis 
was  subordinate  and  temporary.  The  investigation  and  con- 
trol generally  of  the  disease  in  the  State  falls  within  the 
sphere  of  the  health  department.  Recommendations  were 
made,  and  an  act  of  I9o68  established  the  Maryland  Tubercu- 
losis Sanatorium.  This  institution  is  governed  by  a  board 
of  managers  consisting  of  the  governor,  the  comptroller,  the 
treasurer,  and  a  number  of  other  persons  which  was 
formerly  six,  but  was  increased  in  1908°  to  seven,  who  are 
appointed  by  the  governor,  with  the  consent  of  the  Senate, 
with  alternating  terms  of  office.  They  must  be  non-partisan, 
and  must  be  technically  experienced;  they  receive  no  pay. 
The  governor  appoints  to  vacancies.  The  board,  known  as 
the  Board  of  Managers,  hires  and  discharges  employes,  and 
sends  a  report  annually  to  the  governor,  who  transmits  it  to 
the  General  Assembly.  The  board  has  complete  charge  of 
the  sanatorium,  which  is  located  near  Sabillasville  in  the 
heart  of  the  Blue  Ridge  Mountains,  on  the  line  of  the 
Western  Maryland  Railway  about  sixty-nine  miles  from 

7  Laws  1892,  ch.  451,  sees.  3,  4. 

8  Laws  1906,  ch.  308. 

9  Laws  1908,  ch.  328. 

5 


66  STATE   ADMINISTRATION    IN    MARYLAND  [536 

Baltimore.  It  was  spoken  of  by  the  governor  in  1910  as 
"  the  leading  institution  of  its  kind  in  the  United  States,"  and 
as  having  "  served  as  a  model  for  many  other  States  which 
were  organizing  institutions  for  the  purpose  of  fighting  the 
'  white  plague.' " 

It  was  opened  in  August,  1908,  and  by  1910  consisted  of 
an  administration  building,  a  dining  hall,  an  infirmary,  eight 
pavilions,  a  house  for  heating  and  lighting  purposes,  a  cottage 
for  the  farmer,  and  some  small  buildings.  Since  then,  con- 
stant additions  and  improvements  have  been  made.  At  the 
close  of  1911  the  number  of  patients  in  the  institution  was 
210,  and  by  the  loan  of  1910  the  capacity  was  increased  by 
about  200. 10  Persons  who  can  afford  to  pay  are  expected  to 
do  so,  but  there  are  certain  free  beds,  and  in  1912"  it  was 
stated  that  "  preference  is  given  so  far  as  the  maintenance  is 
sufficient,  to  free  treatment."  The  institution  is  devoted  en- 
tirely to  persons  suffering  from  tuberculosis  in  a  curable 
form  who  present  a  reasonable  hope  of  recovery. 

In  addition  to  the  State  Sanatorium,  there  are  two  private 
sanatoriums  which  have  received  state  aid,  the  Hospital  for 
Consumptives  of  Maryland,  popularly  known  as  Eudowood, 
and  the  Jewish  Home  for  Consumptives  at  Reisterstown. 
These  care  for  both  incipient  and  advanced  cases.  A  private 
concern  had  also  instituted  a  tuberculosis  sanatorium  (Pine 
Bluff  Sanatorium)  on  the  Eastern  Shore  near  Salisbury. 
In  I9I212  this  was  purchased  by  the  State.  These  sana- 
toriums provide  sufficient  accommodations  for  white  con- 
sumptives in  Maryland.  What  is  now  needed  is  adequate 
provision  for  the  colored  tuberculous  patients  in  the  State. 

In  addition  to  a  hospital  for  tuberculous  negroes,  the 
state  board  recommends  that  there  be  established  a  chain  of 
small  local  hospitals  somewhat  similar  to  that  at  Pine  Bluff 
for  the  care  of  the  advanced  cases  in  the  communities  im- 
mediately surrounding  them.  Such  patients  as  are  deemed 
by  the  local  health  officers  to  be  a  menace  to  the  health  of 

10  Report  1912. 

"  Ibid. 

12  Laws  1912,  ch.  650. 


537]  CHARITIES   AND    CORRECTIONS  6/ 

the  community  or  such  sufferers  as  are  not  in  a  position  to 
get  proper  care  should  be  removed  to  these  local  institutions. 

In  addition,  it  is  urged  that  the  system  of  tuberculous 
visiting  nurses  established  in  Baltimore  and  in  several  coun- 
ties be  extended  either  under  state  or  other  auspices  to  cover 
the  entire  State.  Experience  has  proved  that  these  nurses 
are  necessary  to  the  proper  care  of  the  sufferers. 

If  this  work  for  the  prevention  and  cure  of  tuberculosis 
is  to  be  properly  and  systematically  done,  it  is  necessary 
that  it  be  under  the  direction  of  some  guiding  hand. 
Furthermore,  it  is  fairly  certain  that  a  central  body  could 
more  economically  handle  the  two  tuberculosis  sanatoriums 
now  in  existence  and  the  proposed  sanatorium  for  negroes 
than  could  separate  organizations.  The  commission  having 
in  charge  the  conduct  of  the  State  Sanatorium  has  proved 
its  efficiency,  and  by  its  experience  has  become  conversant 
with  methods  of  dealing  with  tuberculosis.  It  is  therefore 
desirable  that  a  law  be  enacted  making  the  commission  of  the 
present  State  Sanatorium  the  managing  body  of  all  sana- 
toriums now  or  hereafter  erected  by  the  State,  and  giving  it 
authority  to  inspect  them  and  to  advise  as  to  the  conduct  of 
all  sanatoriums  or  other  organizations  for  the  treatment  of 
tuberculosis  now  supported  wholly  or  in  part  by  the  State  or 
any  of  its  subdivisions. 

Among  the  most  important  of  the  charitable  duties  which 
fall  to  the  State  is  provision  for  such  children  as  for  one 
cause  or  another  must  be  taken  care  of  by  the  public.  The 
State  supports,  either  partially  or  entirely,  various  orphan- 
ages and  placing-out  agencies,  reformatories,  and  schools  for 
defectives.  Practically  all  of  them,  however,  are  under 
private  management,  and,  aside  from  giving  money  to  them, 
the  State  has  never  set  any  standards  which  control  the 
training  of  these  classes  of  children.  The  Board  of  Educa- 
tion has  even  taken  the  stand  that  the  Compulsory  Educa- 
tion Law  does  not  apply  to  children  in  institutions. 

The  orphan  asylum  until  very   recently   was  the  only 


68  STATE  ADMINISTRATION   IN    MARYLAND  [538 

known  way  of  taking  care  of  dependent  children.  Accord- 
ing to  the  best  information  that  can  be  gathered,  there  are 
now  in  this  State  forty  orphan  asylums  in  actual  operation. 
These  care  for  an  average  population  of  2517  children ;  eigh- 
teen of  these,  caring  for  1879  children,  receive  aid  from  the 
State,  and  therefore  come  under  the  jurisdiction  of  the 
board.  Many  of  these  institutions  are  doing  excellent  work 
and  are  as  good  as  any  to  be  found  in  the  country. 

New  Legislation  Proposed  by  the  Board.13 — The  Board 
of  State  Aid  and  Charities  in  its  Seventh  Biennial  Report 
makes  certain  criticisms  and  recommendations  which  we 
shall  briefly  mention.  First,  since  the  board  holds  office  for 
only  two  years,  its  tenure  should  be  lengthened,  and  the 
terms  of  members  should  interlock  in  order  that  men 
familiar  with  the  work  will  remain  in  office.  This  lengthen- 
ing of  tenure  is  needed  especially  in  the  case  of  the  secre- 
tary, and  this  officer  should  be  required  to  be  a  trained  social 
worker.  A  similar  need  is  that  the  system  of  reports  and 
procedure  should  be  made  permanent,  as  frequent  altera- 
tion of  it  causes  confusion.  Because  the  board  must  super- 
vise many  institutions  for  women  and  girls,  it  is  urged  that 
two  women  be  made  members  of  the  board.  There  should 
be  greater  coordination  between  the  work  of  the  Board  of 
State  Aid  and  Charities  and  other  departments  of  state 
administration.  It  is  further  claimed  that  the  board  should 
be  given  supervision  of  almshouses  and  jails  and  of  the 
Penitentiary  and  the  House  of  Correction.  Some  such 
supervision  is  needed,  as  will  be  seen  in  a  later  part  of  this 
chapter,  but  probably  this  should  be  vested  in  a  special  board. 
The  Board  of  State  Aid  and  Charities  makes  two  valuable 
suggestions  regarding  the  general  system  of  state  aid.  Aid 
to  charitable  institutions,  it  says,  should  be  put  on  a  contract 
basis,  in  order  that  the  State  may  be  assured  of  value  re- 
ceived for  money  paid.  Finally,  each  governmental  unit 

13  The  following  criticism  of  present  administrative  conditions 
and  recommendations  for  their  improvement  are  taken  from  the 
Seventh  Biennial  Report  of  the  board,  the  language  of  that  report 
being  closely  followed. 


539]  CHARITIES  AND   CORRECTIONS  69 

should  bear  part  of  the  expense  of  its  sick  and  dependent 
citizens.  The  plan  of  part  state  and  part  local  pay  should  be 
extended  to  cover  all  classes  of  dependents. 

Even  if  the  first  mentioned  changes  were  made  in  its 
organization  and  powers,  it  is  doubtful  if  the  position  of  the 
Board  of  State  Aid  and  Charities  would  be  satisfactory. 
This  board  should  not  be  merely  an  advisory  one.  There 
seems  to  be  every  reason  for  giving  it  complete  control  of 
state  benevolence,  and  control,  rather  than  supervision,  of 
state  aided  institutions ;  this  should  be  done,  of  course,  after 
educational  and  like  matters  have  been  removed  from  its 
scope  and  its  field  has  become  properly  defined.  Only  in 
this  way,  and  also  by  gradual  elimination  of  state  aid  to 
private  charities,  may  the  state  charities  system  become  well 
organized  and  efficient. 

THE  INSANE14 

Laws  for  the  care  of  the  insane  in  Maryland  are  found 
as  far  back  as  1826.  The  insane  of  the  pauper  class,  that  is, 
those  without  means  of  self-support  and  without  relatives 
or  friends  to  keep  them,  formerly  were  committed  to  the 
county  or  city  almshouses  or  to  hospitals  by  the  county 
commissioners  in  the  counties,  and  by  the  "  supervisors  of 
city  charities  of  the  department  of  Charities  and  Cor- 
rections" in  Baltimore  City.  If  these  officers  were  uncer- 
tain as  to  the  sanity  of  a  person,  they  might  take  the  matter 
to  court,  and  have  it  decided  by  a  jury.  If  the  person  con- 
cerned or  his  relatives  or  friends  demanded  this  examina- 
tion, it  had  to  be  made.  The  local  trustees  of  the  poor 
received  insane  persons  committed  to  their  respective  alms- 
houses  and  charged  the  county  or  city,  as  the  case  might  be, 
for  their  support. 

By  laws  of  1904  and  1908"  it  was  provided  that  after 
January  i,  1911,  all  dependent  insane  residents  of  the  State 

14  Code  1912,  art  lix,  sec.  I  ff. 

15  Laws  1904,  ch.  421 ;  1908,  ch.  435. 


/O  STATE   ADMINISTRATION    IN    MARYLAND  [540 

were  to  be  charges  of  the  State,  and  such  persons  who  were 
then  in  local  almshouses  and  asylums  were  to  be  removed 
to  state  insane  hospitals.  For  furthering  this  purpose  a 
special  lunacy  commission  was  appointed  by  the  governor, 
of  which  he  was  a  member  ex  officio,  which  reported  to  the 
next  legislature  on  amendments  and  other  measures  deemed 
necessary  for  the  care  and  treatment  of  the  insane,  including 
plans  for  the  enlargement  of  the  existing  state  insane  hos- 
pitals or  the  creation  of  new  ones. 

This  system  of  state  care  of  the  indigent  insane  was  never 
put  fully  into  effect,  and  a  seeming  abandonment  of  it  is 
found  in  an  act  of  I9io16  which  provided  that  for  each 
patient  in  any  state  insane  institution  who  was  from  a  county 
or  the  City  of  Baltimore,  the  county  or  city,  as  the  case  might 
be,  must  pay  the  State  $100  for  board,  care,  and  treatment, 
and  that  the  remainder  of  the  expense  should  be  borne  by 
the  State.  This  leaves  the  matter  in  a  rather  confused  and 
unsatisfactory  condition.  Efforts  are  being  made,  and  with 
increased  success,  to  provide  for  the  state  care  of  all  indigent 
insane.  While  the  existing  state  hospitals  have  never  be- 
come of  the  capacity  to  accommodate  all  such  indigent  in- 
sane, they  are  being  enlarged  and  added  to,  and  it  would 
seem  that  in  time  the  provisions  of  the  acts  of  1904  and 
1908,  which  have  never  been  repealed,  will  be  carried  out. 
This  matter  will  be  considered  more  in  detail  in  the  follow- 
ing paragraphs. 

Under  the  present  system  of  state  care  of  the  insane, 
"  reimbursing  patients,"  who  pay  partly  for  their  own  care, 
may  be  admitted  to  insane  hospitals,  but  no  one  can  be  com- 
mitted who  has,  through  relatives  or  friends,  any  means  of 
complete  support. 

Involuntary  commitments  to  insane  institutions  cannot 
be  made  without  certificates,  not  over  thirty  days  old,  from 
two  qualified  physicians  who  were  not  related  to  the  person 
examined  and  were  not  connected  with  the  institution  to 
which  it  is  proposed  to  make  the  commitment,  and  who  have 

16  Laws  1910,  ch.  715,  sec.  380. 


CHARITIES   AND   CORRECTIONS  /I 

made  separate  examinations  and  found  it  necessary  that  the 
person  be  committed  to  such  institution. 

Those  in  charge  of  an  asylum  which  is  authorized  to  hold 
in  custody  insane  persons  may  appoint  employes  as  police- 
men, who,  under  orders,  may  pursue,  arrest,  and  return 
escaped  inmates.  The  Lunacy  Commission,  which  will  be 
discussed  later,  is  vested  with  coroners'  powers  in  regard  to 
deaths  in  asylums.  It  may  at  its  discretion  transfer  violent 
patients  from  county  institutions  to  state  hospitals,  at  the 
expense  of  the  county,  or  may  transfer  chronic  cases  from 
state  hospitals  to  county  institutions.  The  superintendent 
or  chief  medical  officer  of  an  asylum  may  parole  or  dis- 
charge except  in  cases  of  criminal  insane. 

In  1910  the  Lunacy  Commission  was  given  power  to  ap- 
point a  board  of  five  "visitors,"  without  pay,  for  each 
county  asylum  and  almshouse.  These  persons  must  be  resi- 
dents of  the  respective  county,  and  two  must  be  women; 
all  members  have  the  power  of  inspection  and  recommenda- 
tion, and  they  are  to  make  monthly  reports  of  their  visits. 
The  personnel  of  these  boards  may  be  changed  by  the  com- 
mission at  pleasure. 

The  board  of  directors  of  the  Penitentiary  or  of  the  House 
of  Correction  may  summon  the  Lunacy  Commission  to 
examine  and  pass  upon  the  sanity  of  a  convict,  and  if  the 
commission  finds  him  insane  it  makes  complaint  to  a  criminal 
court  of  the  county  or  city,  which  orders  his  removal  to  an 
insane  asylum,  at  state  expense. 

Regarding  the  expense  connected  with  the  care  of  the 
state  insane,  the  counties  and  Baltimore  City,  as  before 
stated,  must  pay  $100  for  each  person  sent  to  a  state  insane 
hospital,  the  remaining  expense  being  paid  from  the  state 
treasury.  The  cost  of  keeping  the  patients  is  certified  by 
the  superintendents  of  the  institutions  to  the  comptroller, 
who  collects  the  proper  proportion  from  the  counties.  This 
expense  is  met  by  the  county  by  taxation.  If  it  remains 
unpaid,  it  is  recovered  by  action  by  the  attorney-general; 
and  if  it  remains  unpaid  after  a  levy  of  taxes  in  the  county, 


72  STATE   ADMINISTRATION    IN    MARYLAND  [542 

a  rate  of  one  per  cent  interest  per  month  is  charged  the 
county.  If  it  is  found  that  a  patient  is  not  a  proper  charge 
against  any  particular  county,  he  becomes  completely  a 
state  charge.  Debts  of  the  county  for  the  support  of  an 
insane  person  in  a  state  hospital  are  made  charges  against 
the  estate  of  that  person  if  he  has  no  heirs;  but  no  real 
property  of  the  estate  may  be  sold  for  this  purpose  during 
his  lifetime,  and  no  personal  property  may  be  sold  after  five 
years,  except  by  order  of  a  proper  court.  If  so  sold,  the 
proceeds  must  be  invested  safely  for  the  benefit  of  the 
insane  person. 

There  was  recently  organized  a  Mental  Hygiene  Com- 
mittee, which  is  a  private  institution,  and  which  has  been 
doing  effective  work  in  the  prevention  of  insanity  and  in 
the  after-care  of  patients  from  insane  institutions.  A  num- 
ber of  well-known  scientists  are  members  of  the  committee. 
It  has  been  urged  that  state  aid  be  extended  to  this  very 
valuable  work. 

Lunacy  Commission. — Since  1886  there  has  been  a  Lunacy 
Commission  in  Maryland,17  with  supervision  of  all  public 
and  private  institutions  for  the  insane.  It  consists  of  four 
commissioners  appointed  by  the  governor,  who,  together 
with  the  attorney-general,  serve  for  terms  of  four  years; 
the  governor  is  a  member  ex  officio.  They  receive  no  pay 
but  are  allowed  expenses.  At  least  three  of  them  must  be 
from  Baltimore  City;  two  must  be  graduate  physicians  of 
some  recognized  medical  college  and  must  have  had  five 
years'  practice;  one  of  these  must  have  had  two  years'  ex- 
perience in  treatment  of  the  insane;  and  no  member  is  to 
have  any  pecuniary  interest  in  any  insane  institution  or  in 
the  supplies  for  or  treatment  of  its  inmates. 

The  commission  appoints  a  secretary,  who  is  a  qualified 
physician  with  at  least  two  years'  experience  in  mental  dis- 
eases, and  who  receives  a  salary  of  $2500  and  is  allowed 
$2500  a  year  for  conducting  the  work  of  the  commission. 
Meetings  are  held  monthly,  and  also  at  any  time  at  the 

1T  Code  1912,  art.  lix,  sec.  12  ff. 


543]  CHARITIES   AND   CORRECTIONS  73 

request  of  two  members.  There  are  regular  semi-annual 
meetings,  which  the  several  boards  of  managers  of  the 
various  state  hospitals  for  the  insane  and  feebleminded  are 
required  to  attend,  for  the  purposes  of  "consultation  and 
more  harmonious  and  effective  administration."  The  com- 
mission is  charged  with  the  "  custody,  treatment,  and  cure 
of  the  insane." 

The  powers  and  duties  of  the  commissioners  are  as  fol- 
lows :  They  are  to  investigate  and  supervise  all  insane  in- 
stitutions, public  and  private,  in  the  State,  including  an 
inspection  of  treatment,  sanitation,  diet,  and  records.  The 
secretary,  or  one  member  at  least,  is  to  visit  every  such  in- 
stitution at  intervals  of  not  less  than  six  months.  Visits 
may  be  made  at  any  time,  day  or  night ;  and  on  these  visits 
patients  are  to  be  given  the  opportunity  to  talk  privately 
with  the  visitor.  Furthermore,  every  inmate  of  an  asylum 
must  be  allowed  correspondence  with  the  Lunacy  Com- 
mission, as  well  as  with  one  person  not  a  member  of  the 
commission.  They  are  to  encourage  scientific  research  by 
publishing  bulletins  of  the  scientific  and  administrative  work 
done  by  officers  of  such  institutions.  If  they  find  a  person 
whom  they  believe  to  be  improperly  detained,  they  may, 
through  the  state's  attorney,  bring  the  matter  into  court. 
They  may  also  visit  sanatoriums  and  hospitals,  public  and 
private,  to  discover  if  any  insane  persons  are  held  there 
contrary  to  the  law.  All  officers  of  both  of  these  classes  of 
institutions  are  bound  to  give  them  free  access  and  any  in- 
formation desired.  They  are  empowered  to  summon  wit- 
nesses, administer  oaths,  and  take  testimony  in  cases  to 
determine  whether  or  not  a  person  is  wrongfully  detained, 
and  to  present  offenders  to  the  grand  jury.  From  this  the 
managers  of  the  institution  may  appeal  as  from  cases  before 
a  justice  of  the  peace.  The  commission  makes  annual 
reports  to  the  governor,  which  include  reports  that  they 
have  required  from  institutions  under  their  supervision, 
together  with  recommendations.  The  reports  of  institu- 
tions to  them  must  contain  records  of  each  patient,  accounts 
of  all  accidents  that  have  occurred,  and  all  restraints  used. 


74  STATE   ADMINISTRATION   IN    MARYLAND  [$44 


By  act  of  iQio18  the  commission  was  divided  into  hospital 
district  committees.  All  private  institutions  for  the  insane 
must  obtain  licenses  from  the  Lunacy  Commission;  but 
this  does  not  include  any  state  or  incorporated  institution  in 
the  counties  except  where  a  county  almshouse  receives 
insane  persons  from  another  county  for  pay.  The  applica- 
tion for  such  a  license  must  contain  all  plans  and  details 
of  the  proposed  institution,  —  number  of  patients  to  be  ac- 
commodated, and  so  on.  The  license  may  be  refused,  in 
which  case  appeal  may  be  taken  to  the  courts. 

Insane  Hospitals.19  —  There  are  five  state  insane  hospitals  : 
the  Maryland  Hospital  for  the  Insane,  or  Spring  Grove 
State  Hospital,  at  Catonsville;  the  Springfield  State  Hos- 
pital at  Sykesville;  the  Hospital  for  the  Negro  Insane  of 
Maryland,  or  Crownsville  State  Hospital;  the  Maryland 
Asylum  and  Training  School  for  the  Feeble  Minded,  or 
Rosewood  State  Training  School,  at  Owings  Mills  ;  and  the 
Eastern  Shore  State  Hospital.  The  first  four  of  these  in- 
stitutions, according  to  their  reports,  had  a  total  of  about 
2821  patients  on  October  i,  1913.  Generally  it  may  be 
said  that  the  governor  appoints  the  managing  boards  of 
these  institutions  and  that  they  are  efficiently  conducted  by 
well  trained  physicians.  A  central  purchasing  committee 
recently  established  will  probably  cause  greater  economy 
in  the  buying  of  supplies. 

In  I9io20  a  loan  of  $600,000  was  created  for  their  benefit, 
and  $100,000  of  this  was  set  aside  for  the  Crownsville  negro 
hospital,  constructed  after  that  date.  Similarly,  in  I9I221 
the  sum  of  $200,000  out  of  a  total  insane  hospital  loan  of 
$800,000  provided  for  the  building  of  the  new  Eastern  Shore 
State  Hospital,  which  was  the  result  of  a  demand  for  a 
hospital  for  the  accommodation  of  insane  patients  from  the 
Eastern  Shore. 

18  Laws  1910,  ch.  715,  sec.  38A. 

19  For  organization  of  the  various  hospitals  and  accounts  of  loans, 
see  Lunacy  Commission  Report  1913.    Also  Code  1912,  arts,  xliv, 
lix,  xxxi;  Laws  1910,  ch.  250;  1888,  ch.  183;  1894,  ch.  562;  1912, 
ch.  187. 

20  Laws  1910,  ch.  250. 

21  Laws  1912,  ch.  187. 


545]  CHARITIES   AND    CORRECTIONS  75 

Still  greater  support,  however,  is  needed,  according  to  the 
reports  of  these  institutions  and  of  the  Lunacy  Commission, 
and  it  seems  only  proper  that  Maryland,  having  undertaken 
a  system  of  state  care  of  its  indigent  insane,  should  give  aid 
sufficient  to  provide  adequate  accommodations  for  all  of 
that  class  of  its  inhabitants.  The  organization  of  the  system 
of  state  insane  hospitals  is  good.  The  Lunacy  Commis- 
sion has  only  supervisory  and  not  controlling  authority  over 
the  insane  hospitals,  but  this  seems  wise  in  the  case  of  in- 
stitutions conducted  by  experts  and  maintained,  to  a  con- 
siderable extent,  as  completely  separate  institutions. 

CORRECTIONS 

The  correctional  and  penal  institutions  in  Maryland  are 
various  reformatories,  the  House  of  Correction,  and  the 
State  Penitentiary.  These  will  be  considered  in  the  order 
named. 

Reformatories. — The  following  correctional,  state-aided 
institutions  have  a  semi-,  or  perhaps,  more  correctly,  a 
pseudo-state  character.  Some  of  them  have  on  their  gov- 
erning boards  members  appointed  by  the  governor;  all  are 
authorized  to  receive  inmates  on  commitment  from  the  state 
courts.22  (i)  The  House  of  the  Good  Shepherd,  for  white 
girls  under  eighteen,  must  report  annually  to  the  governor. 
(2)  The  House  of  the  Good  Shepherd,  for  colored  girls,  is 
conducted  like  the  one  for  white  girls.  (3)  The  House  of 
Reformation,  for  colored  boys.  Two  members  of  a  board 
of  sixteen  managers  are  appointed  by  the  governor.  The 
board  must  report  to  the  General  Assembly.  (4)  The 
House  of  Refuge,  for  white  male  children.  Four  members 
of  a  board  of  twenty- four  managers  are  appointed  by  the 
governor.  The  board  must  report  to  the  General  Assembly. 
(5)  The  House  of  Refuge,  female.  Ten  out  of  thirty 
directors  are  appointed  by  the  governor,  with  the  consent  of 
the  Senate.  (6)  The  Industrial  Home  for  Colored  Girls. 

22  Code  1904  art  xxvii,  sec.  477  ff. 


76  STATE   ADMINISTRATION    IN    MARYLAND  [546 

Two  out  of  eleven  managers  are  appointed  by  the  governor. 
The  board  must  report  to  the  General  Assembly.  (7)  St. 
Mary's  Industrial  School  for  Boys,  for  orphan  and  destitute 
boys.  The  governor  appoints  every  two  years  three  persons 
to  the  board  of  trustees. 

The  House  of  Correction. — The  Maryland  House  of  Cor- 
rection,23 established  in  i874,2*  was  reorganized  by  act  of 
i88425  and  was  placed  under  the  control  of  a  board  of  man- 
agers constituted  as  follows :  the  governor,  the  comptroller, 
the  attorney-general,  and  the  treasurer,  for  the  time  being 
ex  officio  members,  and  nine  other  members  appointed  by 
the  governor  with  rotating  terms  of  office,  so  that  three  of 
them  go  out  of  office  every  two  years.  This  board  has  all 
power  of  making  rules  and  regulations,  appointing  officers 
and  employes,  and  so  on,  for  the  running  of  the  institution. 

There  are  specific  enumerations  of  persons  who  may  be 
sent  to  the  House  of  Correction,  but  the  general  rule  is  that 
"whenever  any  person  may  be  convicted  in  any  of  the 
courts  of  this  State  for  any  crime  or  misdemeanor,  who  is 
liable  under  existing  law  to  be  sentenced  to  imprisonment 
for  a  period  not  less  than  two  months  and  not  exceeding 
one  year,  such  court  may,  in  its  discretion,  sentence  such 
person  to  be  confined  in  said  house  of  correction,  instead  of 
other  place  of  confinement." 

In  addition  to  many  faults  in  the  method  of  conducting 
the  House  of  Correction  with  which  it  is  not  possible  to 
deal  in  this  study,  such  as  cruel  punishment,  insanitary 
conditions,  and  so  on,  there  is  one  evil  which  may  be  con- 
sidered administrative  in  character.  This  is  the  system 
of  contract  labor,  which  in  the  Maryland  Penitentiary  has 
been  so  strongly  condemned.  The  system  should  be 
abolished. 

The  Maryland  Penitentiary. — The  State  Penitentiary26  is 
managed  by  a  board  of  six  directors,  who  are  appointed,  two 

23  Code  1904,  art.  xxvii,  sec.  462  ff. 

24  Laws  1874,  ch.  233. 

25  Laws  1884,  ch.  513. 

26  Code  1904,  art.  xxvii,  sec.  548  ff. 


547]  CHARITIES   AND    CORRECTIONS  77 

every  two  years,  by  the  governor,  with  the  consent  of  the 
Senate,  and  who  receive  two  dollars  a  day  for  time  spent  in 
fulfilling  their  duties.  These  directors  annually  appoint  a 
warden,  whom  they  may  discharge,  and  who  receives  $4000 
per  year,  allowance  for  subsistence,  and  occupancy  of  a 
residence  at  the  Penitentiary.  The  warden  appoints,  sub- 
ject to  the  approval  of  the  board,  an  assistant  warden,  a 
physician,  and  a  matron,  and  deputies,  guards,  and  other 
employes,  whose  compensation  is  determined  by  the  board 
of  directors. 

No  person  officially  connected  with  the  Penitentiary  may 
be  interested  in  any  way  in  any  sale  or  purchase  by  or  for 
the  institution,  although  the  directors  may  authorize  the 
payment  of  officers  in  goods,  work,  or  manufactures  of  the 
Penitentiary.  The  directors  are  authorized  to  enter  into 
contract  for  the  employment  of  the  convicts  and  for  the 
sale  of  manufactures  in  the  institution.  The  directors  are 
required  to  make  special  financial  reports  to  the  comptroller, 
and  general  and  financial  reports  every  month  and  every 
year  to  the  governor,  who  transmits  them  to  the  legislature ; 
in  addition  to  this,  the  criminal  court  of  Baltimore  must,  at 
each  term,  charge  the  grand  jury  to  inquire  into  the  conduct 
and  management  of  the  Penitentiary,  and  must  direct  a 
number  of  grand  jurors,  not  over  six,  to  visit  and  ex- 
amine it. 

Criticism. — The  Maryland  Penitentiary  has  long  been  a 
very  profitable  institution,  but  in  a  recent  investigation 
which  was  made  by  the  Maryland  Penitentiary  Penal  Com- 
mission, appointed  by  the  governor  in  1912,  the  institution 
was  found  to  be  corrupt  in  management.  According  to  the 
report  of  the  commission  made  on  February  4,  1913,  many 
evils  were  found  there,  the  worst  of  which,  from  an  ad- 
ministrative point  of  view,  was  the  existence  of  graft  among 
those  in  charge.  The  commission  recommended  important 
changes  in  the  entire  state  penal  system.  The  contract  sys- 
tem of  labor,  it  said,  though  profitable,  should  be  abolished, 
and  there  should  be  substituted  either  the  "state  use"  sys- 


78  STATE   ADMINISTRATION    IN    MARYLAND  [548 

tern,  by  which  the  State  manufactures  goods  for  its  own  in- 
stitutions, or  the  "state  account"  system,  by  which  the 
State  goes  into  the  open  market  with  the  products  of  its  own 
penal  industries.  The  determination  upon  one  or  both  of 
these  systems  should  be  made  after  an  investigation  of 
local  conditions,  including  local  markets,  and  so  on.  In  ad- 
dition to  following  these  suggestions  of  the  commission,  it 
may  be  remarked  that  the  system  of  convict  labor  on  state 
roads,  which  has  been  used  in  other  States,  notably  Col- 
orado, with  benefit  to  both  the  State  and  its  prisoners,  might 
be  found  to  be  suited  to  Maryland  conditions. 

The  commission  recommended  that  all  county  jails — 
which,  incidentally,  it  describes  as  "abominable" — and  all 
city  jails  "be  abolished  as  places  of  final  sentence,  and  be 
maintained  purely  as  places  of  detention  for  those  awaiting 
trial."  It  urged  some  better  supervision  of  the  reforma- 
tories of  the  State  and  the  abolishment  of  duplication  of 
work  by  them.  Most  important  of  all,  the  commission 
recommended  that  the  boards  of  directors  of  all  state  penal 
institutions  be  abolished,  and  that  there  be  created  instead 
a  central  board  of  five  "  prison  inspectors  "  to  be  appointed 
by  the  governor  and  to  serve  without  pay,  but  to  have  a 
high-grade,  high-salaried  secretary.  This  board  should 
have  complete  charge  of  all  state  penal  institutions. 

In  1912"  the  governor  appointed  a  large  Penal  System 
Commission,  composed  of  representatives  of  various  state 
offices  and  state  and  other  institutions,  who  were  given  the 
power  to  investigate  all  institutions  where  persons  are  de- 
tained for  violation  of  the  laws  of  the  State.  This  com- 
mission reported  on  February  16,  1914,  urging  changes 
similar  to  those  advocated  by  the  Maryland  Penitentiary 
Penal  Commission.  It  recommended  the  creation  of  a 
State  Board  of  Control  to  assume  management  of  the  State 
Penitentiary  and  the  House  of  Correction,  and  in  addition 
the  establishment  of  an  Advisory  Board  of  Parole  to  assist 
the  governor  in  the  exercise  of  his  powers  of  pardon  and 

27  Laws  1912,  ch.  596. 


549]  CHARITIES  AND   CORRECTIONS  79 

reprieve  and  to  put  into  force  a  proposed  indeterminate 
sentence  system. 

Some  reorganization  of  the  state  penal  system,  based  on 
the  recommendations  of  these  commissions,  should,  and 
probably  soon  will,  be  effected.  If  the  penal  institutions 
of  the  State  are  to  be  coordinated  and  controlled  properly, 
they  must  be  put  under  the  management  of  a  central  board 
with  complete  authority  over  all  of  them. 


CHAPTER  IV 
FINANCE 

It  need  scarcely  be  remarked  that  the  financial  branch 
of  state  administration  is  one  of  the  oldest,  having  neces- 
sarily existed  from  the  beginning  of  the  state  government 
itself;  although,  of  course,  certain  auxiliary  financial  of- 
fices, like  those  of  state  tax  commissioner,  state  bank  com- 
missioner, and  state  insurance  commissioner,  are  of  very 
recent  origin.  It  is  not  the  primary  purpose  of  this  chapter 
to  present  a  history  of  the  financial  machinery  of  the 
state  government,  but  a  word  may  be  said  as  to  its  develop- 
ment. 

Under  the  first  constitution  of  1776  two  state  treasurers 
were  appointed  by  the  House  of  Delegates,  one  from  the 
Eastern  Shore  and  one  from  the  Western  Shore.1  They 
were  directly  responsible  to  the  House  of  Delegates,  who 
might  examine  their  accounts  or  appoint  auditors  to  do  so. 
By  the  constitution  of  1851  the  system  was  changed,  and 
the  affairs  of  the  treasury  were  divided  between  a  comp- 
troller and  a  treasurer;  a  comptroller  was  elected  for  a 
term  of  two  years  by  the  people,  and  a  treasurer  was  ap- 
pointed by  the  legislature  at  each  biennial  session  and  each 
was  made  a  check  upon  the  other.  It  was  made  the  gov- 
ernor's duty  to  examine  semi-annually  the  accounts  of  both 
officers  and  during  a  legislative  recess  he  could  appoint  to 
a  vacancy.  While  the  comptroller's  duty  was  to  take  care 
of  state  money,  the  treasurer's  was  to  receive  and  disburse 
it. 

Commentators  on  the  constitution  of  1851  considered  the 

1  This  method  of  bisecting  the  State  with  the  Chesapeake  Bay  as 
the  dividing  line  is  frequently  found  in  political  affairs  of  the  last 
century.  It  was  based  on  convenience,  no  doubt,  but  probably  also 
indicated  a  rivalry  between  the  two  "  shores." 

80 


55l]  FINANCE  8 1 

plan  which  went  into  effect  at  that  date  a  great  improve- 
ment over  the  former  arrangement.     Hinkley2  said : 

The  whole  department  is  remodelled.  The  Comptroller  of  the 
Treasury  is  a  new  officer  designed  as  a  check  upon  the  Treasurer. 
The  former  is  to  be  elected  by  the  people,  the  latter  by  the  legislature. 
This  plan  of  giving  authority  to  one  from  one  source  and  to  the 
other  from  another  makes  them,  in  a  measure,  independent  of  each 
other;  and  thereby  the  danger  of  collusion  is  greatly  lessened.  By 
the  old  system,  there  was  no  such  check  upon  the  Treasurer,  the 
integrity  of  a  single  individual  being  the  chief  and  almost  only 
safeguard  of  the  State  in  regard  to  its  treasure. 

This  system  of  division  of  duties  between  the  comptroller 
and  the  treasurer  was  not  changed  by  the  constitutions  of 
1864  and  1867,  and  remains  fundamentally  the  same  today. 

The  comptroller  must  give  bond  of  $50,000,  with  securi- 
ties approved  by  the  governor,  and  must  report  annually  to 
the  legislature,  or,  if  this  is  not  in  session,  to  the  governor, 
accounting  for  all  funds,  revenues,  and  expenditures  of  the 
State,  and  estimating  the  receipts  and  expenses  for  the  cur- 
rent year.3  He  must  also  have  printed  with  the  laws  at 
each  legislative  session  a  statement  of  receipts  and  expen- 
ditures of  state  money,  and  his  office  is  subject  to  inspec- 
tion by  the  governor  and  members  of  the  General  Assembly. 
He  also  obtains  reports  concerning  the  revenues  and  taxes 
of  the  State.  He  checks  up  the  treasurer  by  keeping  an 
account  between  the  latter  officer  and  the  State  and  by 
examining  monthly  the  treasurer's  own  accounts.  Persons 
or  corporations  having  claims  against  the  State  for  errors 
in  taxes  may  present  them  to  the  comptroller,  who  reports 
them  to  the  General  Assembly  in  cases  where  he  believes 
the  claim  to  be  just,  after  first  deducting  any  indebtedness 
of  such  persons  or  corporations  to  the  State.  He  directs 
state's  attorneys  to  bring  suit  in  the  case  of  default  of  any 
receiver  of  public  money,  such  as  a  court  clerk,  a  registrar, 
a  contractor,  or  a  collector  of  taxes,  after  he  has  allowed  a 
certain  period  to  elapse  and  has  given  notice  to  the  de- 
faulter. Also,  in  cases  of  default,  that  is,  where  accounts 

2  Notes  on  the  Constitution,  p.  80. 

3  Code  1912,  art.  xix,  sec.  2  ff. 

6 


82  STATE   ADMINISTRATION    IN    MARYLAND  [552 

of  such  officers  are  in  arrears,  after  thirty  days'  notice  he 
advertises  the  default  in  newspapers  for  thirty  days  prior 
to  a  general  election,  except  in  cases  of  default  unsettled 
for  five  years  or  over.  He  adjusts  all  claims  of  state's 
attorneys  against  the  State;  and  similarly  settles  claims  of 
the  State  against  all  receivers  of  public  money  and  all 
state  debtors,  and  may  in  certain  cases  (at  present,  if  the 
debt  accrued  prior  to  or  during  1908)  make  abatements 
subject  to  the  approval  of  the  governor  and  the  treasurer, 
when  he  feels  sure  that  the  full  amount  could  not  be  col- 
lected. 

The  comptroller  sees  to  it  that  incorporated  monied  in- 
stitutions publish  unclaimed  dividends  and  deposits.  All 
associations  and  corporations,  industrial,  educational,  med- 
ical, humane,  military,  or  charitable,  receiving  state  aid 
must  file  an  annual  itemized  account  with  him,  stating  how 
their  appropriations  were  spent,  and  if  this  is  not  done  the 
comptroller  stops  the  issue  of  further  warrants  for  the  de- 
linquent institution.  The  comptroller  has  examinations 
made  of  the  financial  affairs  of  all  these  state-aided  insti- 
tutions. 

In  some  cases  the  comptroller  is  given  express  power  to 
refuse  payment  to  state  officers  or  institutions  when  he 
considers  a  certain  expenditure  an  unnecessary  one.  This 
is  provided  in  the  case  of  the  State  Lunacy  Commission. 
State-aided  institutions  are  prohibited  from  using  state 
money  for  land  or  buildings  unless  the  appropriation  was 
for  that  purpose. 

The  state  treasurer,4  handling  directly  as  he  does  the 
funds  of  the  State,  is  required  to  give  bond  of  $200,000 
with  securities  approved  by  the  governor;  and  he  in  turn 
must  require  any  agent  whom  he  appoints  to  give  like  bond. 
The  treasurer,  like  the  comptroller,  receives  claims  from 
errors  in  taxation  and  presents  worthy  ones  to  the  legis- 
lature. He  is  authorized  to  appoint,  without  compensation, 

4  Code  1912,  art.  xcv,  sec.  2  ff. ;  art  xxiii,  sees.  106,  107,  no,  in, 
115,  121,  157. 


553]  FINANCE  83 

the  president  of  an  incorporated  bank  of  Baltimore  City 
as  his  agent  to  pay  interest  on  the  public  debt. 

It  would  be  outside  the  sphere  of  this  work  to  examine 
the  great  mass  of  corporation  laws  of  the  State,  but  many 
classes  of  corporations  are  brought  under  the  financial 
supervision  of  the  State,  either  through  the  bank  com- 
missioner, the  insurance  commissioner,  or  the  treasurer. 
All  corporations  receiving  money  on  deposit,  like  security 
and  guaranty  concerns,  must  deposit  a  certain  amount  of 
stock  or  bonds  with  the  state  treasurer,  who  pays  interest 
obtained  on  them  and  holds  them  subject  to  the  order  of  a 
court  of  competent  jurisdiction.  All  such  concerns  must 
report  semi-annually  to  the  treasurer,  and  are  subject  to 
yearly  examination  by  him  or  by  one  of  his  agents.  In 
case  a  corporation  attempts  to  do  business  without  making 
its  required  deposit,  the  treasurer  advertises  the  fact  and 
reports  to  the  attorney-general,  who  institutes  proceedings. 
If  he  orders  changes  in  such  corporations  and  they  are  not 
made,  he  communicates  with  the  attorney-general. 

The  treasurer  receives  fees  collected  by  the  tax  commis- 
sioner for  incorporations,  receives  the  required  deposits 
from  insurance  companies,  and  receives  franchise  taxes 
from  all  corporations.  He  must  report  at  every  session  of 
the  legislature  on  the  condition  of  all  corporations  required 
to  report  to  or  to  be  examined  by  him.5 

PUBLIC  WORKS 

The  office  of  commissioner  of  public  works  was  created 
by  the  constitution  of  i85i6  for  the  superintendence  of  the 
interests  of  the  State  in  railway  and  canal  companies,  in 
which  it  was,  at  that  time,  extensively  involved.  There 
were  four  such  commissioners,  and  the  office  was  elective. 
Since  their  functions  were  practically  the  same  as  those 
of  the  present  Board  of  Public  Works,  they  will  be  outlined 

5  The  bank  commissioner  and  the  insurance  commissioner  will  be 
treated  later  in  this  chapter. 

6  Art.  vii,  sec.  I  ff. 


84  STATE   ADMINISTRATION    IN    MARYLAND  [554 

here.  They  were  to  exercise  a  "diligent  and  faithful  su- 
pervision of  all  Public  Works  "  in  which  the  State  was  in- 
terested as  stockholder  or  creditor.  They  were  to  represent 
the  State  at  all  meetings  of  stockholders ;  to  appoint  direc- 
tors in  every  railroad  or  canal  company  in  which  the  State 
had  constitutional  power  to  appoint  directors;  to  review 
from  time  to  time  the  rates  of  tolls  adopted  by  all  such 
companies ;  to  use  legal  powers  which  they  possessed  to 
obtain  the  establishment  of  rates  of  toll  which  might  pre- 
vent injurious  competition  to  the  detriment  of  the  interests 
of  the  State ;  so  to  adjust  these  rates  as  to  promote  agricul- 
ture in  the  State ;  at  each  session  of  the  legislature  to  make 
a  report,  and  to  recommend  such  legislation  as  they  deemed 
"  necessary  and  requisite "  to  promote  or  protect  the  in- 
terest of  the  State  in  public  works. 

The  State  was  divided  into  four  districts,  with  one  com- 
missioner assigned  to  each  district.  A  commissioner  had 
to  be  for  five  years  a  resident  of  the  district  in  which  he 
was  elected;  and  vacancies  were  appointed  to  by  the  gov- 
ernor. In  case  of  an  equal  division  of  the  board  on  any 
subject  submitted  to  it,  the  treasurer  was  called  upon  to 
decide. 

By  the  constitution  of  i8647  the  governor,  the  comp- 
troller, and  the  treasurer  were  constituted  the  Board  of 
Public  Works,  and  this  was  continued  by  the  present  con- 
stitution, drawn  up  in  1867.  This  system  obviously  places 
the  public  works  much  more  closely  under  the  supervision 
of  the  principal  financial  officers  of  the  State  and  tends 
toward  centralized  efficiency,  while  it  incidentally  saves  in 
salary  expenditure,  since  the  governor,  the  comptroller,  and 
the  treasurer  receive  no  additional  salary  as  members  of 
the  board.  A  few  slight  changes  were  made  by  the  consti- 
tution of  1 867.®  Instead  of  personally  representing  the 
State  at  every  meeting  of  stockholders  of  any  railway  or 
canal  company  in  which  the  State  is  interested,  the  mem- 
bers of  the  board  appoint  representatives. 

7  Art.  yii. 

8  Art.  iii,  sec.  34 ;  art.  xii. 


555]  FINANCE  85 

The  unique  provision  concerning  noncompetitive  rates 
was  continued,  but  this  was  done  by  means  of  reports  fur- 
nished by  the  state  directors.  They  were  to  require  the 
directors  of  these  transportation  companies  "to  guard  the 
public  interest  and  prevent  the  establishment  of  tolls  which 
shall  discriminate  against  the  interest  of  citizens  or  prod- 
ucts of  Maryland,  and  from  time  to  time  and  as  often  as 
there  shall  be  any  change  in  the  rates  of  toll  on  any  of 
these  public  works,  to  furnish  to  the  Board  a  schedule  of 
the  modified  rates."  Thus  they  were  to  adjust  rates  so  as 
to  protect  the  agricultural  interests  of  the  State.  Further, 
the  president  and  the  directors  of  the  Chesapeake  and  Ohio 
Canal  were  required  so  to  "  regulate  the  tolls  of  said  com- 
pany as  to  produce  the  largest  amount  of  revenue  and  to 
avoid  injurious  effects  to  the  company  of  rival  competition 
by  other  internal  improvement  companies."  The  motive 
for  these  interesting  provisions  seems  to  have  been  com- 
pounded of  a  belief  in  the  injuriousness  of  competition,  a 
desire  to  reap  the  largest  possible  profits  from  state  enter- 
prise, and  a  concomitant,  if  paradoxical,  wish  to  protect  the 
interests  of  the  people,  particularly  the  agricultural  in- 
terests. But  these  provisions  need  not  further  be  consid- 
ered on  account  of  their  practical  obsoleteness.  The  period 
of  large  state  investments  in  railways,  canals,  and  like  busi- 
nesses has  passed  away ;  the  principal  duty  of  the  Board  of 
Public  Works  today  is  that  of  handling  state  bonds.9 

It  has  a  few  other  functions.  In  case  of  a  controversy 
between  a  corporation  in  which  the  State  is  interested  and 
its  employes,  the  Board  of  Public  Works  may  arbitrate  if 
it  deems  it  proper,  and  if  both  parties  agree  to  arbitrate. 
If  they  refuse,  the  board  reports  the  case  to  the  next  Gen- 
eral Assembly.10  From  1868"  to  1910  there  could  be  sub- 
mitted to  it  for  final  arbitration  questions  of  difference  aris- 
ing between  any  two  corporations  in  the  State,  or  between 
a  corporation  and  a  citizen,  in  regard  to  locating,  construct- 

9  See  page  12. 

10  Code  1912,  art.  vii,  sec.  I. 

11  Laws  1868,  ch.  471,  sec.  150. 


86  STATE   ADMINISTRATION    IN    MARYLAND  [556 

ing,  or  working  a  railway  or  in  respect  to  transportation 
charges.  But  matters  of  construction  and  transportation 
charges  by  railways  now  come  under  the  jurisdiction  of  the 
comparatively  new  Public  Service  Commission. 

The  Board  of  Public  Works  appoints  a  commander  and 
a  deputy  commander  for,  and  in  general  has  supervision 
of  the  State  Fishery  Force;12  it  buys  equipment  for  it,  re- 
moves officers  for  neglect  or  incompetence,  and  receives 
monthly  financial  reports  from  the  commander.  The  board 
also  appoints  three  persons  as  members  of  the  Shellfish 
Commission,13  one  from  a  tidewater  county  of  the  Eastern 
Shore,  one  from  a  tidewater  county  of  the  Western  Shore, 
and  one  from  Baltimore  City,  and  designates  one  member 
as  president ;  but  the  Shellfish  Commission  makes  its  report, 
which  is  in  the  form  of  a  published  pamphlet,  directly  to  the 
legislature.  The  Board  of  Public  Works  is  supposed  to 
have  charge  of  purchasing  stationery  for  use  in  state 
offices.14 

INVESTMENTS  AND  DEBT 

Counties. — While  the  matter  of  county  investment  is 
distinct  from  that  of  state  investment,  the  State  exercises  a 
certain  supervision  over  the  counties  in  this  regard.  The 
constitution15  provides  that  no  county  in  this  State  shall 
contract  any  debt  or  obligation  in  the  construction  of  any 
railroad,  canal,  or  other  work  of  internal  improvement,  or 
give  or  loan  its  credit  to  or  in  aid  of  any  association  or  cor- 
poration, unless  authorized  by  an  act  of  the  General  As- 
sembly, which  shall  be  published  for  two  months  before  an 
election  for  members  of  the  House  of  Delegates  in  the  news- 
papers of  the  county,  and  shall  also  be  approved  by  a  ma- 
jority of  all  members  elected  to  each  house  of  the  General 
Assembly  at  its  next  session  after  the  said  election. 

12  For  further  treatment  see  page  121  ff. 

13  For  further  treatment  see  page  123  ff. 

14  Code  1912,  art.  IxxviiiA,  sees.  1-6. 

15  Constitution  1867,  art.  iii,  sec.  54. 


557]  FINANCE  87 

The  State. — The  constitution  of  i85i16  provided  that  no 
state  debt  might  be  contracted  by  the  legislature  without  a 
provision  for  an  annual  tax  that  would  meet  the  interest  as 
it  fell  due  and  that  would  also  discharge  the  principal  within 
fifteen  years ;  and  these  taxes  might  not  be  repealed  or  ap- 
plied in  any  other  way  until  their  purpose  was  accomplished. 
The  total  amount  of  state  debt  was  limited  to  $100,000,  but 
it  was  provided  that  the  legislature  might  borrow  $50,000 
to  meet  a  temporary  deficiency  in  the  treasury.  In  i86417 
the  limitation  of  state  indebtedness  to  $100,000  was  omitted. 
Under  the  constitution  as  it  stands  today  the  legislature  in 
contracting  a  debt  is  still  bound  to  provide  an  annual  tax 
sufficient  to  meet  the  interest  and  to  discharge  the  principal 
within  fifteen  years.18 

In  the  process  of  disposing  of  the  investments  of  the 
State  in  so-called  internal  improvements  and  in  banking 
concerns,  which  began  to  take  place  about  the  middle  of  the 
last  century,  the  Board  of  Public  Works  was  naturally  the 
body  which  carried  on  the  disposition.  Laws  of  i8o,219  and 
I9o620  provided  that  in  selling,  in  pursuance  of  provisions 
of  the  last  state  constitution,  the  interest  of  the  State  in 
works  of  internal  improvement  or  in  any  banking  corpora- 
tion the  Board  of  Public  Works  was  to  advertise  in  news- 
papers and  receive  bids,  which  should  be  opened  publicly ;  if 
bids  were  in  its  judgment  high  enough,  it  was  to  sell. 

There  are  a  number  of  general  regulations  in  force  at 
present  concerning  the  conducting  of  the  finances  of  the 
State,  especially  with  reference  to  public  debts  and  sinking 
funds.  Money  remaining  in  the  treasury  at  the  end  of 
every  fiscal  year  over  $150,000  and  the  amount  necessary 
to  meet  the  expenses  of  government  and  interest  on  public 
debt  is  held  to  the  credit  of  the  general  sinking  fund  and 
invested  by  the  treasurer  in  overdue  obligations  of  the  State, 

16  Constitution  1851,  art.  iii,  sec.  22. 

17  Constitution  1864,  art.  iii,  sec.  33. 

18  Constitution  1867,  art  iii. 

19  Laws  1892,  ch.  310. 

20  Laws  1906,  ch.  185. 


88  STATE   ADMINISTRATION    IN    MARYLAND  [558 

or,  if  these  are  not  procurable,  in  not  yet  matured  state 
obligations,  or  in  United  States  securities,  or  in  "  such  other 
productive  stocks  or  bonds  as  the  governor,  Comptroller, 
and  Treasurer  may  consider  safe  and  reliable."21  At  least 
$100,000  must  be  set  aside  each  year  for  the  general  sinking 
fund  and  invested  in  this  manner.  All  securities  purchased 
for  this  fund  are  held  to  its  credit,  and  interest  on  those 
securities  which  are  still  to  mature  is  credited  to  the  fund 
until  the  securities  mature  and  are  redeemed,  or  are  dis- 
posed of  by  the  General  Assembly. 

When  the  comptroller  believes  that  there  is  a  surplus  in 
the  treasury  above  what  is  needed  for  current  expenses,  he 
is  to  invest  it  in  bonds  or  certificates  of  the  state  debt,  pur- 
chased at  par  or  less  ;22  and,  in  this,  preference  is  given  to 
overdue  debt.  The  comptroller  and  the  treasurer  may  at 
any  time  require  overdue  debt  of  the  State,  or  any  part  of 
it,  to  be  presented  for  payment  by  giving  at  least  thirty 
days'  notice  to  the  holders  that  on  a  certain  day  interest 
on  it  will  cease.  In  any  case  of  such  buying  up  of  state 
bonds  they  are  to  be  cancelled,  and  the  interest  accrues  to 
the  credit  of  the  sinking  fund  until  the  General  Assembly 
may  dispose  of  them. 

All  of  the  funded  debts  of  the  State,  or  parts  of  them, 
when  redeemed  are  cancelled,  except  $100,000  each  year, 
which  goes  to  the  credit  of  the  sinking  fund  ;23  but  all  parts 
of  the  funded  debts  of  the  State  created  for  the  benefit  of 
"  internal  improvement  works "  or  on  account  of  the 
"  tobacco  debt "  which  are  redeemed  and  purchased  continue 
to  be  a  charge  against  these  particular  debts,  and  are  carried 
to  the  credit  of  the  sinking  fund  for  that  purpose  exclusively. 

When,  in  the  judgment  of  the  Board  of  Public  Works, 
the  public  interests  will  be  subserved  by  it,  the  board  may 
direct  the  treasurer  to  sell  securities  belonging  to  the  sink- 
ing funds,  and,  if  the  proceeds  are  not  needed  to  pay  a  debt 

21  Code  1912,  art.  Ixxxi,  sec.  194. 

22  Ibid.,  art.  xix,  sees.  32,  33. 

23  Ibid.,  art.  xcv,  sees.  8,  9. 


559]  FINANCE  89 

of  the  State  due  or  about  to  become  due,  they  are  to  be 
reinvested  by  the  treasurer  in  new  sinking  fund  securities.24 

The  comptroller  and  the  treasurer,  four  times  a  year,  are 
required,  in  the  presence  of  the  governor,  to  count  and 
cancel  the  bonds  and  certificates  for  stocks  of  the  State,  to 
count  and  examine  other  securities  purchased  by  the  treas- 
urer for  use  of  the  sinking  fund,  and  to  make  a  statement  of 
this  work,  countersigned  by  the  governor.  The  work  must 
be  gone  over  by  committees  from  the  legislature  and  re- 
ported to  the  legislature.25 

Stocks,  bonds,  and  securities  belonging  to  the  State  are 
deposited  with  some  safe  deposit  company  of  Baltimore 
City,  selected  by  the  treasurer  with  the  approval  of  the 
Board  of  Public  Works ;  the  treasurer  is  not  allowed  to  have 
access  alone  to  these,  but  must  go  in  company  with  the 
comptroller  or  obtain  a  second  key  to  the  vaults  from  him. 
Both  the  treasurer  and  the  comptroller  keep  books  account- 
ing for  the  securities,  stocks,  and  bonds  belonging  to  the 
sinking  funds ;  these  are  open  to  inspection  by  the  governor 
and  by  the  Senate  Finance  Committee  and  the  Ways  and 
Means  Committee  of  the  House  of  Delegates.26 

TAXATION 

Machinery  of  Taxation. — In  the  counties  practically  the 
entire  process  of  taxation  is  in  the  hands  of  the  county  com- 
missioners, subject,  of  course,  to  state  imposition  of  taxes 
and  state  rules  for  collection.  In  Baltimore  City  the  ad- 
ministration of  the  taxation  system  is  divided  between  the 
mayor  and  the  City  Council  and  the  appeal  tax  court. 

The  county  commissioners  and  the  mayor  and  the  City 
Council  respectively  are  given  the  power  of  "  imposing 
taxes  "  and  presenting  them  to  the  collectors.  If  they  fail 
to  do  this,  the  governor  appoints  a  tax  board  of  three  mem- 
bers, for  the  county  or  city  as  the  case  may  be,  who  may  be 

24  Code  1912,  art.  xcv,  sec.  31. 

25  Ibid.,  sec.  23. 

26  Ibid.,  sees.  28,  29. 


9O  STATE   ADMINISTRATION   IN    MARYLAND  [560 

taken  from  the  State  at  large,  who  make  the  levy  and  re- 
ceive compensation  at  the  rate  of  three  dollars  a  day.27  The 
clerk  to  the  county  commissioners  or  to  the  appeal  tax  court, 
or  the  register  of  Baltimore  City,  makes  returns  of  the 
assessors  to  such  tax  boards ;  and  these  officers  also  certify 
state  assessments  to  the  comptroller. 

The  collectors  of  taxes  are  chosen  yearly  in  the  counties 
by  the  county  commissioners  and  in  Baltimore  City  under 
local  regulations;  all  collectors  must  give  separate  bond  to 
the  State,  approved  by  the  governor,  although  Garrett, 
Talbot,  Montgomery,  and  Washington  Counties  are  ex- 
empted from  this  latter  provision.  If  no  collector  is  chosen 
in  a  county  or  in  the  city,  the  governor  appoints  one  from 
the  State  at  large  and  approves  his  bond,  or  a  separate  col- 
lector of  state  taxes  may  be  chosen  in  a  county  or  in  the 
city.28 

The  county  commissioners  in  the  counties  and  the  appeal 
tax  court  in  Baltimore  have  powers  of  valuation  and  assess- 
ment and,  after  notice,  of  revaluation  and  reassessment;29 
in  this,  they  work  through  assessors  and  collectors,  whose 
compensation  is  fixed  by  the  county  commissioners  or  by 
the  mayor  and  the  City  Council.30 

The  commissioner  of  the  land  office,  the  clerks  of  courts, 
and  the  registers  of  wills  make  returns  to  the  tax  officials 
which  will  help  them  to  keep  account  of  property.31  The 
county  commissioners  and  the  appeal  tax  court  of  Baltimore 
keep  records  of  property  and  its  valuation ;  and  their  clerks 
send  lists  of  assessments  to  the  comptroller  within  thirty 
days  after  the  annual  levy  of  taxes.32  Applications  for  de- 
ductions and  abatements  are  made  to  the  county  commis- 
sioners and  to  the  appeal  tax  court,  respectively,  while  ap- 
peal lies  in  the  counties  to  the  circuit  courts,  and  in  Balti- 

27  Code  1912,  art.  Ixxxi,  sees.  28,  30,  32. 

28  Ibid.,  sees.  33,  34,  37,  41. 

29  Ibid.,  sees.  203  ff. 

30  Ibid.,  sec.  8. 

31  Ibid.,  sees.  10,  n. 

32  Ibid.,  sees.  25,  26. 


56l]  FINANCE  91 

more  to  the  Baltimore  city  court.83  Refunding  to  state 
collectors  for  overpayments  is  done  by  the  General  Assembly 
upon  notification  from  the  comptroller  or  the  treasurer.34 
When  a  collector  finds  it  necessary  to  make  a  sale,  by  dis- 
tress or  by  execution,  in  order  to  collect  a  tax,  he  must  make 
a  statement  of  his  intention  and  allow  thirty  days  to  elapse. 
This  regulation  does  not  apply  to  Garrett  or  Talbot  County.35 
Collectors  are  paid  by  commissions  which  are  limited  by 
law. 

Rules  of  Taxation, — The  constitution  of  1867  provides 
that  personal  property  of  residents  of  the  State  shall  be  sub- 
ject to  taxation  in  the  county  or  city  which  is  the  bona  fide 
residence  of  the  owner  for  the  greater  part  of  the  year,  but 
goods  and  chattels  permanently  located  shall  be  taxed  in  the 
city  or  county  where  they  are  located.36  It  is  also  laid  down 
that  the  legislature  is  to  provide  by  law  for  state  and  muni- 
cipal taxation  upon  revenues  accruing  from  business  done 
in  the  State  by  all  foreign  corporations.37  And  it  is  provided 
that  the  General  Assembly  shall  not  pass  local  or  special 
laws  for  the  assessment  and  collection  of  taxes  for  state  or 
county  purposes,  or  extending  the  time  for  the  collection 
of  taxes.38 

State  Tax'  Commissioner. — By  acts  of  i87439  and  1878*° 
the  office  of  state  tax  commissioner  was  established,  to  take 
charge  of  the  taxation  of  corporations.  The  office  is  one 
in  the  Treasury  Department,  and  the  commissioner  is  ap- 
pointed by  the  governor,  the  comptroller,  and  the  treasurer, 
or  by  a  majority  of  them,  for  a  term  of  four  years,  with  an 
annual  remuneration  of  $2500  and  travelling  expenses. 

The  state  tax  commissioner,  before  May  15  of  each  year, 
assesses  for  state  purposes  the  shares  of  capital  stock  of  all 
corporations  subject  to  taxation  in  Maryland,  and  reports 

33  Code  1912,  art.  Ixxxi,  sees.  16,  18. 

34  Ibid.,  sec.  51. 

35  Ibid.,  sec.  52. 

36  Constitution  1867,  art.  iii,  sec.  51. 
"  Ibid.,  sec.  58. 

38  Ibid.,  sec.  33. 

39  Laws  1874,  ch.  483. 

40  Laws  1878,  ch.  178. 


92  STATE   ADMINISTRATION    IN    MARYLAND  [562 

the  assessment  to  the  comptroller.  He  also  reports  to  the 
General  Assembly  at  each  session  the  amount  of  the  basis 
of  assessment  for  state  purposes  in  the  several  counties  and 
Baltimore  City.  All  certificates  of  incorporation  and 
amendments  of  charters  must  be  delivered  to  the  tax  com- 
missioner.41 

All  corporations  must  report  annually  to  the  tax  commis- 
sioner on  their  shares  of  capital  stock ;  security,  safe  deposit, 
fidelity,  guaranty,  and  trust  companies  doing  business  in 
Maryland  must  specify  in  their  annual  reports  their  securi- 
ties and  investments ;  and  he  in  turn  assesses  and  levies  state 
taxes  on  them.  The  county  commissioners  and  the  appeal 
tax  court  in  Baltimore  City  make  alterations  and  corrections 
in  valuations  and  assessment,  upon  direction  of  the  tax  com- 
missioner and  the  attorney-general.  When  returns  of  stock- 
holders and  of  real  property  are  made  to  the  county  com- 
missioners and  the  Baltimore  City  appeal  tax  court  by  cor- 
porations, those  officers  send  to  the  tax  commissioner  a 
statement  of  the  property  valuation,  and  from  this  he 
calculates  the  value  of  the  shares  of  capital  stock.  This  he 
certifies  to  the  county  commissioners  and  the  appeal  tax 
court  of  Baltimore;  and  these  corporation  shares  are  for 
county  and  municipal  purposes  valued  to  the  owner  where 
he  resides  if  he  is  a  Maryland  resident.  If  the  owner  is 
not  a  state  resident,  they  are  valued  to  the  owner  in  the 
county  or  city  where  the  corporation  is  situated  and  the 
tax  is  collected  from  the  corporation. 

Special  rules  are  laid  down  concerning  steam  railways: 
They  are  subject  to  an  annual  state  tax  on  gross  receipts, 
as  are  other  corporations,  and  their  real  and  personal  prop- 
erty is  subject  to  county  and  city  taxation  where  such  prop- 
erty is  located.  When,  however,  they  are  subject  to  a  state 
gross  receipt  tax,  they  are  not  subject  also  to  a  state  tax  on 
personal  and  real  property.  When  they  are  subject  to 
county  or  city  real  and  personal  property  tax,  their  shares 
of  stock  are  not  subject  also  to  county  or  city  taxation. 

41  Code  1912,  art.  xxiii,  sec.  4  ff. 


FINANCE  93 

In  general,  all  other  corporations  are  subject  to  state,  county, 
and  municipal  taxation  on  capital  stock,  gross  receipts,  and 
all  property.  On  certain  kinds  of  corporations  a  state 
franchise  tax  on  gross  receipts  or  earnings  is  levied,  which, 
if  the  business  of  the  corporation  is  partly  within  and  partly 
without  the  State,  is  apportioned  according  to  the  propor- 
tion of  the  business  done  in  the  State. 

The  assessment  of  railway  rolling  stock  is  made  by  the 
local  boards  of  control  and  review  and  is  returned  to  the 
tax  commissioner,  who  apportions  the  amount  for  local  taxa- 
tion according  to  the  proportion  of  mileage  in  each  county 
(or  in  Baltimore),  and  notifies  the  local  tax  authorities.42 
Distilled  spirits  in  the  hands  of  distillers  and  warehouse 
owners  are  assessed  as  personal  property ;  for  their  taxation 
each  such  distiller  or  warehouse  owner  must  annually  report 
on  the  value  of  such  property  to  the  tax  commissioner,  who, 
after  a  hearing,  if  necessary  assesses  it.43  The  state  tax 
commissioner  may  administer  oaths  and  examine  persons 
concerning  the  business  of  any  corporation  in  the  State  or 
its  revenues.44 

STATE  AUDITOR 

This  office  is  a  part  of  the  Treasury  Department.  The 
auditor45  is  appointed  by  the  governor,  the  comptroller,  and 
the  treasurer,  or  a  majority  of  them,  for  a  term  of  two 
years,  at  a  salary  of  $2500.  A  deputy  auditor  is  similarly 
appointed,  and  receives  a  salary  of  $2000.  The  power  of 
removal  for  failure  to  perform  duties  is  vested  in  the  ap- 
pointive body.  The  state  auditor  examines  yearly  the  books 
and  accounts  of  all  court  clerks,  registers  of  wills,  sheriffs, 
and  state's  attorneys,  as  well  as  those  of  the  officials  of  the 
state  tobacco  warehouses  and  such  other  state  offices  as  the 
Board  of  Public  Works  directs.  He  reports  to  this  board, 

42  Code  1912,  art.  Ixxxi,  sec.  212. 

43  Ibid.,  sec.  218. 

44  Ibid.,  sec.  172. 

45  Ibid.,  sec.  229  ff. ;  Laws  1912,  ch.  190. 


94  STATE   ADMINISTRATION    IN    MARYLAND  [564 

which  may  approve  suggestions  for  changes  in  accounting 
methods  made  by  him  for  the  above  mentioned  offices. 

In  1912  the  jurisdiction  of  the  state  auditor  was  wid- 
ened so  as  to  include  all  institutions  receiving  state  aid. 
Provision  was  also  made  that  if  from  his  examinations  a 
state  officer  were  found  in  default,  the  Board  of  Public 
Works  must  direct  the  state's  attorney  or  the  attorney-gen- 
eral to  bring  suit  against  him.46 

BANKING  DEPARTMENT:  BANK  COMMISSIONER 

The  bank  commissioner47  also  is  appointed  by  the  Board 
of  Public  Works  for  a  term  of  two  years.  His  function  is 
to  supervise  the  banking  business  carried  on  in  the  State. 
He  or  his  deputy  examines  the  affairs  of  every  banking  in- 
stitution except  national  banks  at  least  once  a  year,  having 
access  to  all  papers,  vaults,  and  so  on.  Either  one  of  them 
may  examine  on  oath  the  trustees  or  any  officers  or  agents 
of  a  bank.  If  upon  examination  a  bank  appears  to  be  in- 
solvent or  not  to  have  complied  with  the  law,  or  to  be  con- 
ducting a  business  dangerous  to  the  public,  the  bank  com- 
missioner notifies  the  governor,  who  may,  if  he  deems  it 
proper  after  advising  with  the  attorney-general,  bring  suit 
against  the  bank. 

The  bank  commissioner  likewise  reports  any  violation  of 
the  law  by  trustees  or  officers  of  a  bank  to  the  governor, 
who  may  direct  the  attorney-general  to  prosecute.  He 
must  also  examine  a  bank  on  request  of  its  board  of  direc- 
tors ;  must  receive  and  verify  reports  made  by  banking  in- 
stitutions ;  and  must,  in  the  case  of  failure  of  a  banking  in- 
stitution, act  as  a  temporary  receiver  until  a  permanent  re- 
ceiver is  appointed  by  the  court.  All  members  of  the 
banking  department,  commissioner,  deputy,  and  clerks,  are 
bound  to  secrecy  in  matters  concerning  banks  under  super- 
vision. Every  bank  and  trust  company  transmits  the  fol- 

46  Laws  1912,  ch.  190. 

47  Code  1912,  art.  xi,  sec.  I  flf. 


565]  FINANCE  95 

lowing  reports  to  the  commissioner:  at  least  five  per  year 
on  assets  and  liabilities,  to  be  published  in  local  papers; 
one  per  year  on  stockholders  and  their  holdings ;  any  special 
reports  required  by  the  commissioner. 

Before  a  bank  comes  into  existence,  the  bank  commis- 
sioner must  receive  and  approve  the  articles  of  incorpora- 
tion. After  this  he  examines  the  bank  to  see  if  all  the  re- 
quirements of  the  law  have  been  met.  He  then  issues  a 
certificate,  without  which  no  bank  may  begin  business ;  and 
he  may,  with  the  advice  and  consent  of  the  governor,  with- 
hold such  a  certificate.  He  must  also  approve  of  the  reor- 
ganization of  national  banks  under  the  state  banking  laws, 
and  must  prescribe  regulations  for  their  issues  of  notes  and 
currency.  Similarly  he  must  approve  all  consolidations  of . 
banks ;  and  must  receive  notification  of  the  liquidation  of  a 
bank,  in  which  case  he  "takes  over"  the  institution,  and 
this  acts  as  a  bar  to  attachment  proceedings. 

The  bank  commissioner  approves  stocks  and  bonds  held 
as  "additional  reserve"  by  trust  companies.  He  notifies 
any  bank  or  trust  company  when  its  reserve  falls  below  the 
required  amount,  and  if  the  institution  fails  to  make  up  the 
deficit  within  thirty  days,  he  may  notify  the  governor  and 
direct  the  attorney-general  to  institute  proceedings  for  the 
appointment  of  a  receiver  or  to  wind  up  the  business  of 
the  institution. 

A  system  of  fees  and  charges  to  cover  the  cost  of  exam- 
ination of  banks  is  laid  down  by  law,  and  the  banking  de- 
partment is  allowed  a  certain  fund  for  expenses  in  case 
the  charge  made  upon  a  bank  does  not  cover  them.  The 
bank  commissioner  reports  annually  to  the  governor  and  may 
suggest  amendments  to  the  law. 

INSURANCE  COMMISSIONER 

The  state  insurance  commissioner48  is  appointed  by  the 
governor,  the  comptroller,  and  the  treasurer,  who  may  re- 

48  Code  1912,  art.  xxiii,  sec.  175  ff. 


96  STATE   ADMINISTRATION    IN    MARYLAND  [$66 

move  him  without  notice  or  cause.40  His  term  is  four 
years.  He  is  charged  with  the  execution  of  the  insurance 
laws  of  the  State.  The  department  inspects  all  insurance 
companies;  supervises  their  securities  and  the  valuation  of 
their  policies;  issues  to  them  certificates  to  do  business; 
and,  if  their  financial  condition  is  not  satisfactory,  notifies 
them  to  cease  doing  business.  The  commissioner  must  in- 
spect every  insurance  company  at  least  once  during  his 
term  of  office,  and  also  must  inspect  any  insurance  com- 
pany in  the  State  on  the  request  of  five  or  more  persons 
pecuniarily  interested.  A  system  of  fees  for  licenses  and 
examinations  is  laid  down  by  law,  and  the  expenses  of  office 
are  paid  from  such  receipts.  In  closing  out  a  company 
the  commissioner  works  in  conjunction  with  the  circuit 
courts;  the  judge  appoints  an  examining  committee.  All 
insurance  companies  must  report  annually  concerning  their 
policies  and  business,  and  charters  for  new  business  must 
be  approved  by  the  attorney-general.  The  insurance  com- 
missioner upon  issuing  annual  licenses  to  companies  to  do 
business  publishes  in  the  newspapers  abstracts  of  their  an- 
nual reports. 

REVIEW  OF  CONDITIONS  AND  NEEDS 

In  1908  the  governor  recommended  that  the  state  treas- 
urer be  elected  by  the  people,  and  that  the  term  of  office 
of  the  comptroller  and  the  treasurer  be  changed.  He  said : 

I  am  convinced  that  it  is  best  for  the  interests  of  the  people  that 
the  Comptroller  and  Treasurer  should  hold  office  for  the  same 
period  of  time,  four  years,  for  which  the  governor  is  elected. 

Therefore  I  recommend  that  a  Constitutional  Amendment  be  pro- 
posed increasing  the  term  of  the  Comptroller  and  Treasurer  each 
to  four  years  and  making  the  Treasurer  an  elective  office.  The 
Governor-elect  has  declared  himself  in  favor  of  lodging  with  the 
people  the  selection  of  more  of  their  state  officials  and  I  feel  con- 
fident that  he  will  approve  this  recommendation. 

The  fee  system  in  many  state  offices  has  frequently  been 
attacked.  In  1910  the  governor  called  attention  to  the  fact 

*9  Townsend  v.  Kurtz,  83  Md.  340. 


567]  FINANCE  97 

that  a  commission  had  been  appointed  to  investigate  the 
fee  system,  and  he  went  on  to  say :  "  The  present  system 
of  permitting  officials  to  pay  themselves  and  their  subordi- 
nates from  the  fees  collected  by  them  and  turning  the  ex- 
cess, if  any,  into  the  State  Treasury,  is  wrong  in  principle 
and  in  practice." 

The  value  of  the  office  of  state  auditor  is  generally  recog- 
nized, but  at  present  the  scope  of  his  authority  is  much  too 
limited.  He  should  be  given  general  authority  and  proper 
assistance  to  investigate  the  accounts  of  every  collector  of 
taxes  in  the  State.  And,  indeed,  it  has  been  suggested  that 
the  auditor  should  be  given  financial  supervision  of  every 
administrative  office  in  the  State. 

The  general  attitude  concerning  the  departments  of  bank- 
ing and  insurance  is  perhaps  one  of  too  much  regard  for 
governmental  benefit,  in  the  form  of  large  office  receipts, 
and  too  little  regard  for  the  benefit  of  the  State  generally. 
Their  prime  function  is,  of  course,  to  supervise  these  busi- 
nesses so  that  the  individual  may  be  protected. 

Financial  Policy. — During  the  time  that  the  Constitution  of  1776 
was  in  force  in  Maryland  there  was  one  form  of  activity  of  the 
state  government  which  is  worthy  of  special  note.  About  the  year 
1820  the  State  felt  the  need  of  internal  improvements  in  order  that 
communication  from  one  part  of  Maryland  to  another  might  be 
more  easy.  Accordingly  a  policy  was  begun  of  appropriating  money 
.  .  .  towards  the  building  of  railways  and  canals.  The  most  im- 
portant aid  was  given  to  the  Baltimore  and  Ohio  Railroad  and  the 
Chesapeake  and  Ohio  Canal.  Through  these  subscriptions  by  the 
State  and  other  privileges  granted,  the  interest  of  Maryland  in 
these  enterprises  became  very  great.50 

This  policy  continued  up  until  the  middle  of  the  nine- 
teenth century,  the  Board  of  Public  Works  having  charge 
of  such  interests  and  indeed  a  considerable  amount  of  con- 
trol over  the  enterprises,  such  as  supervision  of  rates  of 
toll,  and  so  on.  After  the  middle  of  the  last  century,  how- 
ever, a  general  movement  was  begun  to  get  rid  of  such  in- 
terests. The  constitutions  of  1864  and  1867  and  laws 
passed  about  the  end  of  the  century  made  provision  for  such 
disposition. 

50  B.  C.  Steiner,  Institutions  and  Civil  Government  of  Maryland,  p.  14. 
7 


98  STATE   ADMINISTRATION    IN    MARYLAND 

The  governor,  the  comptroller,  and  the  treasurer,  or  any 
two  of  them,  were  authorized  by  the  constitution  of  1864" 

to  exchange  the  State's  interest  as  stockholder  and  creditor  in  the 
Baltimore  and  Ohio  Railroad  Company  for  an  equal  amount  of  the 
bonds  or  registered  debt  now  owing  by  the  State;  and  subject  to 
such  regulations  and  conditions  as  the  General  Assembly  may,  from 
time  to  time,  prescribe,  to  sell  the  State's  interest  in  other  works  of 
internal  improvement,  whether  as  stockholder  or  creditor;  also  the 
State's  interest  in  any  banking  corporation,  and  receive  in  payment 
the  bonds  and  registered  debt  now  owing  by  the  State;  equal  in 
amount  to  the  price  obtained  for  the  State's  said  interest;  provided 
that  the  interest  of  the  State  in  the  Washington  branch  of  the  Balti- 
more and  Ohio  Railway  be  reserved  and  excepted  from  sale;  and 
provided  further,  that  no  contract  of  sale  of  the  State's  interest  in 
the  Chesapeake  and  Ohio  Canal,  the  Chesapeake  and  Delaware  Ca- 
nal, or  the  Susquehanna  and  Tide  Water  Canal  Companies,  shall  go 
into  effect  until  the  same  shall  be  ratified  by  the  ensuing  General 
Assembly. 

Similarly,  in  the  constitution  of  i86752  the  Board  of 
Public  Works  was  authorized  to  dispose  of  state  interests 
in  private  enterprises  by  exchanging  them  for  state  bonds 
and  registered  state  debt. 

In  iSpS53  the  board  was  authorized  to  sell  an  annuity  of 
$90,000,  created  in  1854,  payable  by  the  Northern  Central 
Railway  Company  to  the  State  of  Maryland.  All  proceeds 
from  the  sale  were  to  be  applied  to  payment  of  the  state 
debt  or  to  the  purchase  of  securities  for  the  sinking  fund 
of  the  state  debt.  The  board  was  likewise  authorized  to 
dispose  of  the  interest  of  the  State  in  the  Baltimore  and 
Potomac  Railway  Company. 

By  acts  of  i8()2,54,  iSpo",65  and  I9o656  provision  was  made 
for  the  sale  by  the  Board  of  Public  Works  of  the  state  in- 
terests in  the  Washington  branch  of  the  Baltimore  and  Ohio 
Railroad  Company,  the  Annapolis  Water  Company,  and  the 
Farmers'  National  Bank  of  Annapolis.  As  in  other  cases, 
it  was  provided  that  the  stock  in  these  companies  might  be 
exchanged  for  certificates  of  state  indebtedness,  and  in  any 

81  Constitution  1864,  art.  iii,  sec.  52. 
52  Constitution  1867,  art.  xii,  sec.  3. 
68  Laws  1898,  ch.  378. 
54  Laws  1892,  ch.  310. 
88  Laws  1896,  ch.  172. 
86  Laws  1906,  ch.  185. 


$69]  FINANCE  99 

event  the  proceeds  were  to  be  applied  to  cancellation  of  the 
state  debt. 

Gradually  most  of  the  interests  of  the  State  in  private 
enterprises  were  sold.  Then  followed  a  short  period  during 
which  very  few  state  loans  were  made.  But,  beginning 
about  the  last  decade  in  the  last  century,  a  new  era  of  im- 
provements was  begun,  this  time  through  direct  public  ac- 
tion rather  than  through  encouragement  of  private  enter- 
prises, and  this  necessarily  brought  about  state  loans  which 
have  gradually  increased  until  they  have  become,  within  the 
past  ten  years,  very  considerable.  An  enumeration  of  sev- 
eral of  the  more  recent  of  these  loans  will  indicate  the  gen- 
eral tendency.57  In  1896  there  was  created  a  Penitentiary 
Loan  of  $500,000,  in  1899  a  Consolidated  Loan  of  $5,800,- 
ooo,  in  1902  a  State  Loan  of  1902  of  $600,000,  in  1911  a 
State  Insane  Hospital  Loan  of  $600,000,  in  the  same  year  a 
Sanatorium  Loan  of  $100,000,  in  1908-10  a  $5,000,000  State 
Roads  Loan,  in  1912  a  Second  Insane  Hospital  Loan68  of 
$800,000,  in  the  same  year  a  State  Loan  of  1912™  of  $3,- 
170,000,  as  well  as  a  loan  to  meet  temporary  needs  in  road 
construction,60  and  a  Johns  Hopkins  University  Technical 
School  Loan61  of  $600,000,  and  finally  in  the  same  year 
(1912)  a  State  Loan  of  1914  of  $i,ooo,ooo.62  Demands  are 
now  being  made  for  further  loans,  typical  among  them  be- 
ing that  for  a  large  one  for  the  continuation  of  the  good 
roads  policy. 

In  1908  we  find  the  governor  recommending  further  dis- 
posal of  remaining  state  interests  in  private  financial  affairs 
and  a  concentration  of  state  finances  toward  paying  off  the 
increasing  debts.  He  says  :63  "  The  State,  in  my  judgment, 
has  no  right  to  take  money  from  taxpayers  for  the  payment 
of  her  debts  when  she  has  securities  in  her  treasury  as  in- 

57  Code  1912,  art  xxxi,  sec.  2  ff. 
88  Laws  1912,  ch.  187. 
69  Ibid.,  ch.  370. 

60  Ibid.,  ch.  361. 

61  Ibid.,  ch.  90. 

62  Ibid.,  ch.  477. 

63  Report  1908. 


IQO  STATE  ADMINISTRATION   IN    MARYLAND  [570 

vestments  that  can  be  disposed  of  at  fair  prices  and  for 
enough  to  pay  her  indebtedness;  and  I  hold  further  the 
opinion  that  the  State  should  not  own  stock  in  banks  or 
corporations,  thus  assuming  a  stockholder's  liability  and  be- 
coming a  partner  in  business  ventures." 

At  the  end  of  1911  the  gross  debt  was  $10,428,926.13,  in 
excess  of  that  of  the  previous  year  by  $2,899,000,  on  ac- 
count of  the  State  Roads,  Public  Highways,  and  Hospital 
Loans.  After  deducting  the  bonds,  in  the  sinking  funds, 
amounting  to  $5,117,379.72,  and  other  assets  of  the  State 
aggregating  $6,693,849.72,  the  net  debt  of  the  State  was 


Suggested  Economies  in  Administration.  —  Various  econo- 
mies in  the  carrying  on  of  the  state  government  have  been 
suggested  :  (  i  )  A  central  purchasing  agency  has  been  rec- 
ommended to  purchase  all  supplies  furnished  to  state  insti- 
tutions, on  the  ground  not  only  that  money  would  be  saved, 
but  that  the  quality  of  the  supplies  would  be  improved. 
In  1912  the  governor  suggested  that  such  an  agency  might 
consist  of  the  governor,  the  comptroller,  and  the  treas- 
urer, with  authority  to  employ  a  secretary  especially  fitted 
for  the  work.  (2)  A  state  architect  should  be  appointed, 
it  has  been  claimed  by  the  governor  and  by  a  commission  on 
appropriations.  At  present  independent  architects  receive 
large  sums  from  the  State  each  year;  the  creation  of  the 
office  of  state  architect,  it  is  believed,  would  save  the  State 
some  thousands  of  dollars,  and  would  bring  about  uni- 
formity in  architecture  in  all  new  state  buildings.  (3)  In 
1912  the  governor  urged  the  enactment  of  a  law  requiring 
that  all  state  money  in  the  hands  of  the  treasurer  be  de- 
posited after  advertisement  in  those  sound  banks  which  will 
pay  the  highest  rate  of  interest.  This  would  do  away  with 
the  possibility  of  idle  money. 

In  1912  the  governor  made  the  following  recommenda- 
tions :  (4)  For  all  use  of  the  public  highways  of  the  State 
by  telephone,  telegraph,  electric  light,  electric  railway,  or 
like  companies  there  should  be  imposed  by  the  State  a  cer- 


571]  FINANCE  IOI 

tain  small  license  or  franchise  tax,  and  the  sum  so  collected 
should  be  used  for  the  maintenance  of  these  state  roads. 
(5)  There  should  be  an  abolishment  of  counsel  for  the 
Boards  of  Election  Supervisors  throughout  the  State;  of 
counsel  for  the  Liquor  License  Board,  the  police  commis- 
sioners, the  insurance  commissioner,  the  sheriffs,  and  like 
departments.  This  work  should  be  done  by  the  various 
state's  attorneys,  the  attorney-general,  and  the  city  solicitor 
of  Baltimore  City.  (6)  A  number  of  offices  should  be 
consolidated,  that  of  the  tax  commissioner  with  the  comp- 
troller, the  Live  Stock  Sanitary  Board  with  the  state  vet- 
erinarian, the  state  veterinarian  with  the  veterinarian  of 
the  Maryland  Agricultural  College,  and  the  fire  marshal 
with  the  insurance  commissioner.  These  consolidations 
seem  radical  but  logical. 

At  various  times  it  has  been  observed  that  there  should 
be  no  continuing  appropriations  by  the  legislature,  all  ap- 
propriations being  made  from  session  to  session.  This  plan 
would  no  doubt  be  a  clearer,  more  orderly  system  of  ap- 
propriation. It  is  undoubtedly  true  that  running  appro- 
priations in  some  cases  cause  waste.  On  the  other  hand, 
an  educational  institution  of  good  rank  might  fail  to  receive 
its  appropriation  because  of  the  whim  of  a  group  of  legis- 
lators. Further,  it  may  be  doubted  if,  with  the  present 
short  sessions  and  the  dilatoriness  of  the  legislature,  the 
entire  list  of  state  appropriations  of  all  classes  would  be 
covered  at  one  session.  If  these  difficulties  might  be  elim- 
inated, the  plan  of  biennial  appropriations  should  be  a  good 
one. 

When  dealing  with  the  financial  system  of  any  American 
State  the  English  budget  system  usually  presents  itself  to 
mind.  The  lack  in  our  own  system  of  any  approximately 
accurate  estimate  of  future  financial  needs,  of  any  fairly  ac- 
curate harmonizing  of  future  income  and  expenditure,  sug- 
gests that  plan  of  the  English  government.  Whether  the 
budget  method  could  be  grafted  on  our  political  tree,  par- 
ticularly in  the  States,  may  be  a  question.  The  need  of 
something  of  the  sort  is  not  to  be  denied. 


IO2  STATE  ADMINISTRATION   IN    MARYLAND  \_S72 

Taxes. — There  are  certain  corporations  doing  business  in 
the  State  whose  profits  are  known  to  be  more  than  fair  and 
there  are  certain  discrepancies  in  corporation  taxation,  and 
the  latter  are  usually  in  connection  with  such  corporations. 
One  example  of  either  the  carelessness  or  the  corruptness 
with  which  the  corporation  taxation  laws  are  carried  out 
is  seen  in  the  uniform  return  on  gross  receipts  made  year 
after  year  by  any  one  corporation.  For  instance,  the  tax 
on  gross  receipts  of  the  Adams  Express  Company  for  the 
year  ending  September  30,  1907,  as  given  in  the  tax  com- 
missioner's report,  was  $3000,  and  again  in  1909  it  was 
$3000.  It  is  rather  unlikely  that  this  tax  should  come  out 
in  round  numbers  when  the  great  majority  of  taxes  listed 
in  the  table  in  the  report  come  to  odd  figures  down  to  the 
cents  column ;  and  it  may  be  taken  for  granted  that  this 
would  not  recur,  for  the  gross  receipts  of  such  a  corporation 
would  not  be  so  uniform  from  year  to  year.  A  fault  of 
this  sort  is,  of  course,  one  of  the  conducting  of  an  office 
rather  than  of  its  organization.  But  such  discrepancies 
should  be  remedied.  Another  noticeable  feature  in  the  sys- 
tem of  taxation  is  that  the  comptroller's  reports  show  bal- 
ances due  from  collectors  of  state  taxes  in  the  various  coun- 
ties in  some  cases  amounting  to  thousands  of  dollars  and 
running  back  ten,  twenty,  thirty,  and  more  years;  this  in- 
dicates a  weakness  of  enforcement 

In  1912  the  governor  recommended  the  repeal  of  all 
laws  providing  for  discounts  in  the  payment  of  taxes,  state, 
county,  and  municipal :  "The  discount  of  the  taxpayer  who 
is  able  to  pay  in  time  .  .  .  lessens  the  amount  of  taxes  that 
he  pays  and  the  deduction  in  the  amount  paid  by  taxpayers 
of  this  class  must  be  made  up  and  paid  by  other  taxpayers, 
who,  for  many  reasons,  cannot  avail  themselves  of  this  re- 
duction. It  is  manifest,  therefore,  that  it  produces  an  in- 
equality among  the  taxpayers  of  the  state."  Nor  does  he 
think  it  a  wise  policy,  because  of  the  existence  of  these 
laws,  to  levy  more  money  than  is  actually  expended  in  car- 
rying on  the  government.  He  estimates  that  there  should 


573]  FINANCE  IO3 

be  a  difference  in  the  taxes  collected  in  the  State,  city,  and 
county  of  from  $100,000  to  $175,000. 

Here  we  enter  the  more  abstract  science  of  taxation. 
Against  this  recommendation  by  the  governor  must  be 
placed  the  theory  that  stands  back  of  the  system  of  tax 
discounting,  namely,  that  by  discounting  taxes,  many  will 
be  led  to  pay  who  otherwise  might  delay  for  a  long  time 
and  against  whom  recovery  might  be  had  with  difficulty. 
On  the  whole,  however,  the  idea  of  tax  discounting  seems 
to  be  an  erroneous  one,  especially  since  by  it  the  monied 
classes  are  favored  and  the  poorer  classes  are  obliged  to 
bear  the  weight  of  the  system. 

One  need,  however,  in  the  tax  system  of  Maryland  stands 
out  above  all  others, — that  of  uniformity  and  equalization. 
There  has  been  great  confusion  in  rates  and  methods  in  the 
various  counties.  This  defect  is  coming  to  be  realized,  and 
some  improvement  should  be  effected.  In  1910,  recom- 
mendations for  a  general  reassessment  had  come  from  the 
Federation  of  County  Commissioners  of  Maryland  and 
from  various  other  quarters,  and  the  governor  strongly 
urged  it,  and  along  with  it  the  establishment  of  some  uni- 
form system  of  taxation.  In  that  same  year,  a  reassess- 
ment of  all  property  outside  of  Baltimore  City  was  pro- 
vided for,  and  in  1912  a  return  of  all  the  counties  but  three 
showed  an  increase  of  $125,000,000  in  the  taxable  basis  of 
the  State,  according  to  the  governor's  report  of  the  latter 
year. 

The  desired  uniform  system  was  not  provided  for,  how- 
ever, and  the  new  governor  again  urged  the  need  of  "  some 
central  board  to  supervise  and  review  the  assessments  then 
made  (under  the  act  of  1910)  or  any  future  assessments, 
in  order  to  secure  uniformity  in  the  payment  of  the  taxes 
in  all  sections  of  the  State."  "  My  observation  of  that  as- 
sessment," he  went  on  to  say,  "confirms  my  belief  in  the 
wisdom  and  necessity  of  such  a  tribunal." 

In  1912  the  governor,  in  pursuance  of  an  act  of  that 
year,64  appointed  a  "  Commission  for  the  Revision  of  the 

8*Laws  1912,  ch.  779. 


IO4  STATE  ADMINISTRATION   IN    MARYLAND  [5/4 

Taxation  System  of  the  State  of  Maryland  and  City  of 
Baltimore."  This  commission  reported  in  1913,  and  made 
many  criticisms  and  suggestions,  which  are,  in  substance, 
as  follows:65  The  time  when  state  taxes  are  due  and  pay- 
able is  set  by  state  law,  but  in  practice  their  collection  is  con- 
trolled by  the  local  laws  providing  for  the  payment  of  local 
taxes,  and  further,  the  date  when  local  taxes  are  due  and 
payable  varies  in  each  county.  Although  the  amount  of 
local  taxes  collected  is  many  times  the  amount  of  state  taxes 
collected,  the  charge  of  state  taxes  is  in  excess  of  the  charge 
against  the  collection  of  local  taxes.  In  some  counties 
"  local  collectors  advance  to  the  State  an  amount  which  they 
estimate  may  be  collected  and  make  for  themselves  the 
amount  of  the  discount  allowed  by  the  State,"  and  in  some 
counties  there  is  great  laxity  in  remitting  back  taxes. 
Almost  numberless  discrepancies  in  taxation  throughout  the 
counties  are  described.  For  example,  Frederick  County 
paid  for  the  years  between  1878  and  1911  on  a  basis  less  than 
in  1877,  in  spite  of  a  great  increase  in  property  value;  again, 
properties  are  assessed  in  some  counties  as  low  as  twenty 
per  cent  of  their  market  value. 

Many  of  these  faults  are  possible  because  there  are  no 
state  laws  providing  for  the  audit  of  books  of  local  collec- 
tors by  state  officers.  It  may  be  further  remarked  that 
many  of  the  same  criticisms  apply  to  the  method  of  collect- 
ing taxes  from  corporations.  The  commission  urges  the 
adoption  of  a  plan  by  which  there  would  be  in  each  county 
a  county  supervisor,  representing  a  central  tax  commission. 
It  is  stated  that  this  method  would  secure  more  uniform 
standards  of  value  and  an  equalization  of  assessment  of 
property. 

It  is  further  pointed  out  that  no  state  provision  is  made 
for  the  reassessment  of  real  and  personal  property  at  regu- 
lar intervals.  The  commission  says:  "The  most  glaring 
inequality  is  the  variation  in  ratio  of  assessment  to  true 
value  of  property.  The  assessment  of  property  is  a  busi- 
ness proposition,  and  should  be  put  upon  a  business  basis. 

65  See  report,  especially  pp.  13-16. 


5/5]  FINANCE  IO5 

To  accomplish  this  we  must  accept  the  most  modern  and 
effective  method — control  of  all  matters  relative  to  taxa- 
tion to  be  vested  in  a  state  board"66  This  need  of  a  central 
state  board  of  assessment  and  review  which  could  equalize 
Maryland  taxes  has,  in  the  past  few  years,  been  urged  by 
the  governor,  the  public  press,  and  many  interested  persons. 
It  seems  safe  to  say  that  such  a  board  will  soon  be  created. 

SUMMARY 

By  way  of  concluding  this  chapter  we  may  simply  review 
a  list  of  some  of  the  more  important  suggestions  that  have 
been  made  along  the  lines  of  the  various  branches  of  finan- 
cial administration  in  Maryland:  (i)  extension  of  the 
comptroller's  and  treasurer's  term  of  office  from  two  to  four 
years,  and  making  the  treasurer's  office  an  elective  one 
rather  than  a  legislatively  appointive  one;  (2)  increasing  the 
state  auditor's  jurisdiction;  (3)  abolishment  of  the  fee  sys- 
tem; and  institution  of  a  uniform  system  of  bookkeep- 
ing throughout  state  offices;  (4)  elimination  of  extrava- 
gances in  the  expenses  of  legislative  sessions;  (5)  doing 
away  with  counsel  for  many  boards  and  offices  like  that  of 
the  insurance  commissioner;  (6)  establishment  of  a  cen- 
tral purchasing  agency;  (7)  establishment  of  a  state  archi- 
tect's office;  (8)  consolidation  of  certain  offices  in  the  State 
whose  work  overlaps,  as  that  of  the  State  Live  Stock  Sani- 
tary Board  with  that  of  the  state  veterinarian;  (9)  some 
remedy  for  the  system  of  continuing  appropriations ;  ( 10) 
enactment  of  a  law  requiring  that  all  state  money  in  the 
hands  of  the  treasurer  be  deposited  in  good  banks  at  in- 
terest; (n)  the  exercise  of  great  caution  in  the  present 
era  of  large  debt  contraction;  (12)  the  possible  inaugura- 
tion of  some  such  plan  as  the  budget  system;  (13)  elim- 
ination of  the  system  of  tax  discounts ;  (14)  the  very  greatly 
needed  standardization  and  equalization  of  taxes  through- 
out the  State,  and  for  this,  the  creation  of  a  central  state 
board  of  tax  control  and  review. 

66  Report,  p.  9. 


CHAPTER  V 
GENERAL  ECONOMIC  WELFARE 

In  the  preceding  chapters  we  have  treated  the  four  prin- 
cipal branches  of  state  administration  into  which  it  is  cus- 
tomary to  divide  a  subject  of  this  nature,  namely,  public 
education,  public  health,  charities  and  corrections,  and  taxa- 
tion and  finance.  There  remains  to  be  considered  in  this 
chapter  a  group  of  miscellaneous  state  activities. 

THE  PUBLIC  SERVICE  COMMISSION  OF  MARYLAND 

This  commission1  is  a  comparatively  new  organ  of  admin- 
istration, having  been  created  in  1910.  The  governor  ap- 
points, and  may  remove  after  a  hearing,  the  three  members 
of  the  commission,  one  of  whom  he  designates  as  chairman 
and  all  of  whom  serve  six  years  according  to  a  rotating 
system.  A  general  counsel  is  also  appointed  by  the  gov- 
ernor, and  a  secretary  is  appointed  by  the  commission.  The 
general  counsel  represents  the  commission  legally,  and  in 
complaints  made  against  public  service  corporations  he  acts 
on  behalf  of  the  public.  The  commission  has  power  to 
examine  under  oath,  summon  witnesses,  and  so  on. 

The  jurisdiction  of  the  commission  extends  to  all  public 
service  business  carried  on  either  by  state  corporations  or  by 
those  owning,  leasing,  operating,  or  contrplling  the  corpora- 
tions. This  includes  all  common  carriers,  street  railways  in 
towns  of  not  less  than  2000  inhabitants,  all  corporations 
connected  with  the  business  of  furnishing  gas,  electricity, 
heat,  light,  telegraph,  telephone,  water,  or  canal  services, 

1Code  1912,  art.  xxiii,  sees.  413-468;  Laws  1910,  ch.  180;  1912,  ch. 
734,  162.  For  convenience  the  word  "  corporations "  will  be  used 
here  to  include  all  corporations,  companies,  or  concerns  carrying  on 
a  public  service  business. 

1 06 


5/7]  GENERAL   ECONOMIC   WELFARE  IC«7 

and  all  business  of  transporting  freight  or  property.  This 
jurisdiction  involves  general  supervision  of  all  public  service 
corporations,  power  to  examine  their  condition,  capitaliza- 
tion, and  franchises,  all  details  of  business  and  manner  of 
conducting  it  with  respect  to  adequacy,  security,  accom- 
modation, and  compliance  with  the  law  and  with  orders  of 
the  commission.  The  commission  makes  recommendations 
for  changes  in  the  public  service  laws.  It  prescribes  a  form 
of  annual  report  for  public  service  corporations,  and  may 
also  require  reports  of  earnings,  expenses,  capitalization, 
debts,  salaries,  and  so  on,  within  a  specified  time.  No 
franchise  nor  any  right  under  any  franchise  to  own  or 
operate  a  public  service  business  may  be  assigned,  trans- 
ferred or  leased,  nor  any  contract  or  agreement  made  with 
reference  to  it,  without  the  approval  of  the  commission, 
nor  may  any  construction  or  business  be  begun  without  such 
approval,  given  after  a  hearing  to  determine  if  it  is  neces- 
sary to  or  convenient  for  the  public  service. 

Penalties  are  also  prescribed  for  any  failure  to  obey  the 
orders  of  the  commission,  and  the  act  of  any  officer  or 
agent  of  a  corporation  is  deemed  an  act  of  the  corporation. 
The  commission  may  investigate  of  its  own  motion  any  act 
or  omission  of  a  public  service  corporation,  and  must  do 
so  when  such  act  or  omission  is  in  violation  of  the  law  or  of 
any  of  its  own  orders. 

Complaints  against  a  public  service  corporation  may  be 
made  to  the  commission,  which  is  to  forward  them  to  the 
corporation  concerned.  If  reparation  for  the  alleged  in- 
jury is  not  made  by  the  corporation  or  there  is  no  cessation 
of  the  violation  within  a  given  time  specified  by  the  commis- 
sion, an  investigation  must  be  held  provided  there  seem  to 
the  commission  to  be  reasonable  grounds  for  the  complaint. 
When  the  commission  makes  investigation  of  such  a  com- 
plaint, it  must  either  dismiss  it  or  order  the  corporation  to 
satisfy  it.  When  the  commission,  after  a  hearing  held  upon 
its  own  motion  or  upon  a  complaint,  is  of  the  opinion  that 
rates  or  charges  are  unjust,  unreasonable,  unduly  discrimina- 


108  STATE   ADMINISTRATION   IN    MARYLAND  [578 

tory,  or  unduly  preferential,  it  must  fix  just  and  reasonable 
ones  by  order  served  on  the  corporation.  When  the  com- 
mission similarly  decides  that  the  "regulations,  practices, 
equipment,  appliances  or  services"  of  a  public  service  cor- 
poration are  "unreasonable,  unsafe,  unreasonably  improper 
or  inadequate,"  it  must  fix  regulations,  appliances,  and  so 
on,  by  order  served  on  the  corporation.  Provision  is  made 
to  prevent  one  public  service  corporation  from  gaining  con- 
trol of  another,  and  to  prevent  excessive  indebtedness  by 
such  a  corporation ;  supervision  of  this  is  given  to  the  com- 
mission. The  commission  is  also  empowered  to  make 
valuations  of  corporations. 

The  law  lays  down  a  long  list  of  rules  for  common 
carrier  supervision,  including  applications  for  switches  and 
sidings ;  filing,  classifying,  and  publishing  schedules  of  rates ; 
setting  up  of  joint  tariffs  between  two  or  more  corpora- 
tions ;  use  of  rebates  and  drawbacks ;  giving  undue  prefer- 
ence to  any  person,  corporation,  or  locality;  granting  free 
passes  and  reduction  of  fare ;  false  rating,  billing,  weighing, 
and  classifying;  "long  and  short"  hauling;  distribution  of 
cars  and  other  facilities  among  shippers;  investigating  of 
accidents,  and  so  on.  The  law  for  other  public  utilities  is 
practically  the  same,  with  the  addition  of  a  few  special 
provisions,  as,  for  instance,  that  the  commission  is  em- 
powered to  fix  technical  standards  like  "  gas  pressure  "  and 
"  electrical  efficiency "  standards,  and  that  no  municipality 
except  Baltimore  may  build  or  operate  gas  or  electrical 
works  without  a  certificate  of  authority  granted  by  the  com- 
mission, unless  such  works  are  for  strictly  municipal 
purposes. 

John  A.  Lapp,  in  a  brief  comparative  review  of  the  Mary- 
land Commission  in  the  American  Political  Science  Review, 
February,  1911,  speaks  of  the  judicial  procedure  laid  down 
for  the  Maryland  Public  Service  Commission  as  follows : 

The  law  wisely  adopted  the  Wisconsin  method  for  procedure  in 
the  courts.  Actions  may  be  commenced  in  the  courts  [that  is,  in 
the  circuit  court  for  any  county  or  before  any  judge  of  the  Supreme 
Bench  of  Baltimore  City,  or  in  any  court  of  Baltimore  City  of 


5/9]  GENERAL   ECONOMIC   WELFARE 

appropriate  jurisdiction]  to  set  aside  any  order  of  the  commission 
as  unreasonable  within  sixty  days  thereafter.  The  commission  is 
given  twenty  days  to  make  answer.  Precedence  is  given  over  all 
other  civil  cases. 

If  on  the  trial  any  new  evidence  is  presented  which  was  not  pre- 
sented to  the  commission,  the  court  is  required  to  transmit  the  new 
evidence  to  the  commission  and  stay  further  proceedings.  The  com- 
mission may  change  its  order  conformably  to  the  new  evidence  or 
let  the  original  order  stand. 

The  value  of  this  provision  in  preventing  delays  and  in  maintain- 
ing the  credit  of  the  commission  is  obvious.  Complainants  are  in- 
duced to  lay  their  whole  case  before  the  commission  in  the  first 
instance.  It  has  been  a  favorite  method  in  cases  of  railroad  com- 
missions and  the  interstate  commerce  commission  to  attempt  to  dis- 
credit the  orders  of  the  commission  by  withholding  important  evi- 
dence until  the  case  is  brought  into  court.  The  commission's  orders 
being  overruled  by  the  new  evidence,  has  caused  the  loss  of  public 
confidence  in  the  work  of  the  commission.  This  provision  is  an 
effective  remedy. 

Appeal  lies  to  the  Maryland  court  of  appeals.  In  all  ac- 
tions arising  under  this  act  the  burden  of  proof  is  upon  the 
party  adverse  to  the  commission — a  striking  provision. 

It  would  seem  scarcely  worth  notice  that  the  Maryland 
Public  Service  Commission  has  the  power  not  only  to  in- 
vestigate but  to  regulate  both  rates  and  service,  yet  Mr. 
Lapp  speaks  of  the  New  Jersey  law  as  not  including  rate 
regulation.  The  official  discretion  that  is  allowed  by  the 
Maryland  law  should  be  a  merit.  It  is  a  valuable  aid  to 
active  commissioners.  Mr.  Lapp  in  considering  the  Mary- 
land law  concludes :  "  The  commission  under  the  Maryland 
law  does  not  lack  for  power.  As  in  the  case  of  the  New 
York  and  Wisconsin  laws,  certain  defects  of  wording  may 
be  found  after  experience,  but  embodying  as  it  does  the  sub- 
stance and  wording  of  the  laws  of  those  two  States  after 
corrective  amendments  had  been  made,  it  should  be  reason- 
ably effective  in  its  provisions." 

On  account  of  the  fact  that  the  Public  Service  Commis- 
sion has  not  long  been  in  existence  it  would  be  difficult  to 
predict  what  its  actual  value  to  the  State  will  be.  As  has 
been  stated,  the  organization  is  good.  Furthermore,  the 
commission  has,  since  its  institution,  dealt  with  a  consider- 
able number  of  minor  cases.  It  may  be  noted,  however, 


IIO  STATE   ADMINISTRATION    IN    MARYLAND  [580 

that  not  a  great  number  of  cases  of  large  importance  have 
been  handled  by  it,  or  if  handled,  have  not  been  so  settled, 
with  the  possible  exception  of  the  Gas  Case,  as  to  have  any 
very  great  effect  on  any  of  the  larger  public  service  busi- 
nesses of  the  State ;  so  that  some  doubt  seems  to  exist  among 
the  lawyers  of  the  State  as  to  its  efficiency  in  the  way  of 
positive  results.  The  need  would  appear  to  be  greater 
activity  rather  than  any  change  in  machinery. 

STATE  FIRE  MARSHAL 

The  state  fare  marshal2  is  appointed  by  the  governor, 
with  the  consent  of  the  Senate,  for  a  period  of  two  years, 
and  is  removable  by  the  governor  for  cause.  His  bond  is 
$5000  and  his  salary  $2500.  He  or  his  deputy  must  ex- 
amine into  the  causes  of  all  fires  and  into  all  suspected  at- 
tempts to  fire  buildings,  in  which  duties  he  may  subpoena 
and  swear  witnesses.  He  reports  annually  to  the  governor. 
The  expenses  of  the  office  are  drawn  from  money  paid  into 
the  state  treasury  by  the  insurance  commissioner.  At  the 
request  of  the  fire  commissioners  of  Baltimore  City  or  of 
the  county  commissioners  of  a  county  or  of  any  municipal 
authorities,  the  fire  marshal  must  make  to  them  a  report  of 
any  examination  of  a  fire  in  their  respective  jurisdictions. 
In  case  incendiarism  is  discovered  by  the  fire  marshal,  report 
is  made  to  the  state's  attorney,  who  prosecutes.  The  fire 
marshal  or  his  deputy  may  always  enter  or  take  charge  of 
buildings  which  are  burning,  or  which  have  been  burning, 
and  adjacent  buildings ;  and  may,  at  any  time,  inspect  build- 
ings which  are  public  meeting  places,  such  as  churches, 
theatres,  halls,  hospitals,  hotels,  and  schoolhouses,  and  may 
order  provision  of  fire  escapes  sufficient  for  the  public 
safety. 

At  the  close  of  1909  the  fire  marshal  reported  an  examina- 
tion into  the  causes  of  357  fires  of  unknown  origin,  and  27 
arrests  on  the  charge  of  arson,  from  17  of  which  conviction 

2  Code  1912,  art.  xxiii,  sec.  222  ff. 


58 1]  GENERAL  ECONOMIC   WELFARE  III 

resulted.  At  the  end  of  1911  the  number  of  fires  in- 
vestigated reached  4000,  the  number  of  arrests  94,  and  the 
number  of  convictions  80. 

The  use  of  the  word  "  may  "  emasculates  the  law ;  what 
is  needed  is  to  require  regular  and  systematic  inspection  of 
all  public  buildings,  and  to  grant  to  the  fire  marshal  power 
to  order  "fire-traps"  torn  down.  It  has  also  been  recom- 
mended that  the  office  of  fire  marshal  be  consolidated  with 
that  of  insurance  commissioner,  which  would  probably  be  a 
wise  measure. 

LICENSES 

It  is  interesting  to  note  the  attitude  of  the  State  of  today 
toward  the  whole  field  of  business,  as  seen  in  its  require- 
ment of  licenses.3  This  is  more  than  mere  taxation;  in 
many  cases  certain  conditions  must  be  complied  with  before 
the  State  will  accept  the  license  tax  and  allow  a  certain  busi- 
ness to  continue.  A  system  has  been  arranged  in  Mary- 
land whereby  licenses  are  to  be  paid  to  the  clerks  of  the 
circuit  courts  of  the  counties  and  of  the  court  of  common 
pleas  of  Baltimore  City.  In  all  licenses  except  those  for 
fishing  and  for  horseracing  the  license  term  expires  on  the 
first  day  of  May  after  issuance.  If  the  holder  of  a  license 
dies,  the  license  may  be  transferred  to  the  widow,  executor, 
or  administrator.  It  is  made  the  duty  of  sheriffs  and  con- 
stables to  enforce  the  license  system  before  justices  of  the 
peace.  The  system  covers  auctioneers,  billiard  establish- 
ments, brokers,  sale  of  liquors  and  other  things  at  fisheries, 
sale  of  liquor  at  horseraces,  hawkers  and  peddlers,  shipping 
brokers,  traders  and  manufacturers,  all  sale  of  spirituous 
and  fermented  liquors  by  retailers,  "ordinary-keepers" 
(hotels),  oyster  and  eating  houses,  sale  of  intoxicating 
liquors  by  clubs,  shows  and  theatrical  exhibitions,  shows  of 
agricultural  fair  associations,  stallions,  gypsies,  and  tele- 
graph and  express  companies. 

3  Code  1912,  art.  Ivi,  sec.  I  ff. 


112  STATE  ADMINISTRATION   IN    MARYLAND  [582 

The  law  regulates  the  business  of  pilots,  who  are  required 
to  take  examination  and  receive  license  from  a  "board  of 
examiners  of  Maryland  pilots,"  consisting  of  the  presidents 
of  the  Baltimore  Board  of  Trade,  the  Corn  and  Flour  Ex- 
change, and  the  Maryland  Pilot  Association.4 

The  governor  issues  certificates  to  persons  qualified  to 
practice  as  public  accountants.  He  appoints  a  board  of 
examiners  who  hold  office  for  two  years ;  two  of  them  must 
be  public  accountants  and  two  must  be  practising  attorneys. 
Examinations  are  held  at  least  once  a  year  for  applicants  for 
certificates,  and  fees  are  charged  to  cover  examination 
expenses.  Upon  recommendation  of  the  board  the  governor 
issues  the  certificates,  which  he  may  revoke  "  for  sufficient 
cause,"  after  a  hearing.8  Other  licenses  are  treated  in 
various  other  parts  of  this  study. 

STATE  BOARD  OF  LAW  EXAMINERS 

There  is  a  State  Board  of  Law  Examiners,6  consisting  of 
three  members  of  the  bar  of  at  least  ten  years'  standing, 
who  are  appointed  by  the  court  of  appeals  and  hold  office 
for  three  years,  but  are  eligible  for  reappointment.  This 
board  examines  all  applicants  for  admission  to  the  bar,  and 
reports  to  the  court  of  appeals. 

LAND  OFFICE 

Under  the  constitution  of  1776  there  were  two  registers  of 
the  land  office,7  one  from  the  Eastern  Shore  and  one  from 
the  Western  Shore,  who  kept  records  of  land  grants.  By 
the  constitution  of  1851  there  was  created  the  single  elective 
office  of  commissioner  of  the  land  office.  Under  the  present 
constitution  the  commissioner  of  the  land  office  is  appointed 
by  the  governor.  The  land  office  has  charge  of  all  land 

4  Code  1912,  art.  Ixxiv. 
6  Ibid.,  art  IXXVA. 

6  Ibid.,  art.  x. 

7  Ibid.,  art.  liv. 


583]  GENERAL  ECONOMIC  WELFARE  113 

maps  and  records,  the  granting  of  patents,  the  issuing  of 
warrants  to  survey  and  resurvey  land  (by  orders  to  county 
surveyors),  the  hearing  of  disputes  concerning  surveys  or 
patents  given  under  its  authority,  and  the  survey  and  dis- 
position of  all  public  unclaimed  lands.  Land  patents  are 
signed  by  the  governor ;  certificates  of  surveys  must  be  re- 
turned by  surveyors  within  six  months.  A  system  of  fees 
is  laid  down  for  surveys,  patents,  and  so  on.  The  clerks  of 
courts  of  the  counties  are  keepers  of  the  land  records  of  the 
counties,  and  send  to  the  state  land  office  accounts  of  all 
transfers.  In  1911,  132  land  warrants  were  issued  and  72 
executed;  89  patents  were  made,  granting  5864  acres  of 
vacant  land  and  bringing  into  the  state  treasury  $5ii8.6o.8 

ROADS 

From  the  time  of  the  constitution  of  1851  there  have  been 
county  road  supervisors  ;9  but  until  recently  no  great  atten- 
tion was  paid  to  building  better  highways.  Within  the  last 
few  years  the  State  has  made  great  advances  in  this  line,  and 
is  now  constructing  an  elaborate  system  of  roads. 

In  1906  there  was  passed  the  State  Aid  Highway  Act, 
which  provided  for  a  system  of  cooperation  between  the 
State  and  the  counties,  each  bearing  part  of  the  expense. 
This  act  also  provided  for  the  construction  of  State  Road 
No.  i,  which  is  the  pike  between  Baltimore  and  Washing- 
ton. For  this  purpose  an  annual  appropriation  of  $50,000 
was  made  for  the  years  1908,  1909,  and  1910.  Under  this 
State  Aid  Highway  Act,  supervision  of  the  road  work  was 
given  to  the  Highway  Division  of  the  Geological  Survey. 
In  1908  a  system  of  strictly  state  roads  was  provided  for, 
and  the  work  was  placed  in  charge  of  a  State  Roads  Com- 
mission.10 At  first  these  two  authorities  acted  separately, 
until  in  1910  they  were  wisely  consolidated,  and  the  work 
was  given  over  to  the  latter  authority. 

8  Report  1912. 

9  Code  1912,  art.  xci. 

10  Laws  1908,  ch.  141. 


114  STATE   ADMINISTRATION    IN    MARYLAND  [584 

The  State  Roads  Commission  created  in  1908  consists  of 
three  persons  appointed  by  the  governor  and  two  persons 
designated  by  him  from  the  "geological  and  economic 
survey,"  together  with  the  governor  himself  ex  officio ;  the 
commission  is  to  continue  until  the  work  for  which  it  was 
created  is  completed.  The  governor  designates  the  chair- 
man and  has  power  of  removal  of  the  members.  Those 
appointed  by  him  receive  $2000  per  year,  and  the  chairman 
receives  $2500.  The  commission  is  authorized  to  engage  a 
secretary,  a  chief  engineer,  and  all  necessary  employes.  Its 
members  are  personally  to  inspect  the  public  highways  of 
the  State  and  the  work  being  done  on  them.  Maps  and 
statistics  relating  to  the  public  roads  and  showing  the 
progress  of  the  work  being  done  on  them  are  to  be  published 
annually.  The  purpose  of  the  commission  is  stated  to  be 
to  improve  generally  the  highways  of  the  State,  for  which 
it  is  given  extensive  powers  of  survey,  condemnation,  and 
construction  of  roads  and  bridges,  of  entering  into  contracts 
with  persons  and  municipalities,  of  calling  upon  the  Mary- 
land House  of  Correction  for  laborers  for  stone  quarries,  of 
establishing  such  stone  quarries,  and  the  like.  The  com- 
mission may  make  arrangements  with  counties  for  county 
construction,  in  which  case  it  supervises  generally  and  pays 
upon  completion.  The  completion  of  the  "general  system 
of  roads  "  for  the  construction  of  which  the  commission  was 
created  is  limited  to  not  later  than  July  i,  1915,  in  the 
original  law.  Many  special  provisions  were  made,  as  for 
instance  that  a  boulevard  should  be  constructed  between 
Baltimore  and  Annapolis. 

The  law  of  1908  created  a  State  Roads  Loan  of  $5,000,- 
ooo,  for  the  "  establishment,  construction,  improvement,  and 
maintenance "  of  the  general  system  of  public  roads ;  the 
annual  expenditure  of  this  was  limited  to  $1,000,000.  This 
was  apportioned  among  the  counties  in  proportion  to  their 
public  road  mileage.  In  1910"  another  loan,  called  the 
Public  Highways  Loan  of  1910,  and  amounting  to  $1,000,- 

11  Laws  1910,  ch.  116. 


585]  GENERAL   ECONOMIC   WELFARE  11$ 

ooo,  was  created.  In  the  same  year  the  commission  was 
given  power  to  regulate  traffic  on  public  roads  by  means 
of  issued  orders,  for  the  purpose  of  preserving  these  roads, 
particularly  against  such  traffic  as  would  produce  more  than 
the  ordinary  wear  and  tear,  such  as  very  heavy  wagons  and 
automobiles.  There  is  appropriated  $200,000  annually  to 
aid  in  the  building  of  county  roads. 

In  IQI212  a  third  loan  of  $3,170,000  was  provided,  to  be 
known  as  the  State  Loan  of  1912 ;  this  was  specifically  ap- 
portioned among  enumerated  counties  and  roads.  At  the 
same  time  there  was  made  the  "temporary  roads  loan ; "  this 
authorized  the  State  Roads  Commission  to  make  temporary 
loans  in  "  such  sums  as  it  may  require "  on  credit  of  the 
loan  of  1908,  in  order  to  meet  temporary  needs.13  Also  in 
1912  it  was  made  the  duty  of  the  State  Roads  Commission 
to  keep  in  repair  all  state  roads  constructed  or  improved 
by  it.14 

A  brief  chronological  review  of  the  work  done  under  the 
above  laws,  including  mention  of  some  of  its  advantages, 
is  obtained  from  the  governor's  biennial  summary  of  the 
commission's  report  as  follows: 

Since  the  passage  of  the  State  Aid  Highway  Act  at  the  beginning 
of  my  administration  twenty  counties  out  of  the  twenty-three  have 
in  greater  or  less  degree  accepted  the  aid  which  the  State  has  been 
prepared  to  give  them  .  .  .  seventy-five  miles  of  highways  have 
been  built  .  .  .  while  the  engineers  of  this  department  have  fre- 
quently advised  the  counties  and  municipalities  of  the  State  regard- 
ing local  road  and  street  improvements. 

The  visible  results  of  the  work  already  finished  induced  the  pas- 
sage in  1906  of  an  Act  for  independent  construction  by  the  State  of 
a  modern  highway  between  Baltimore  and  Washington. 

The  precedent  thus  established  for  the  construction  by  a  state  of 
main  lines  of  travel — '  market  roads ' — if  pursued  to  the  fullest  ex- 
tent of  the  State's  resources  would  materially  hasten  the  improve- 
ment of  the  roads  so  well  begun  by  the  counties  themselves  under 
the  State  Aid  Act.  The  efficiency  of  the  present  general  act  might 
well  be  supplemented  by  the  passage  from  time  to  time  of  special 
acts  authorizing  the  construction  by  the  State  of  some  of  our  main 
thoroughfares.  The  most  progressive  governments  of  the  world 
to-day  recognize  the  imperative  need  of  smooth  roads  with  easy 
grades,  if  the  people  are  to  reach  their  highest  economic  development. 

12  Laws  1912,  ch.  370. 
is  Ibid.,  ch.  361. 
14  Ibid.,  ch.  375. 


Il6  STATE  ADMINISTRATION   IN    MARYLAND  [586 

By  the  end  of  1909  the  commission  had  visited,  as  author- 
ized by  law,  all  the  counties  of  the  State,  and  after  con- 
ferring with  the  people  of  each  had  laid  out  a  system  of  state 
highways  for  improvement.  In  addition  they  had  surveyed 
431  miles  of  road  and  had  contracted  for  the  construction 
of  1 08  miles,  75  miles  of  which  had  been  graded  and  4^/2 
miles  had  been  completed.  Also  under  the  state  aid  system 
38  miles  had  been  completed.  Roads  are  14  feet  wide,  8 
inches  deep,  and  are  macadam,  except  in  some  counties  of 
the  Eastern  Shore  and  Southern  Maryland. 

The  commission  reported  in  1908  a  desire  to  decrease  the 
cost  of  construction,  and  the  governor  recommended  in  a 
message  to  the  legislature  a  law  authorizing  the  labor  of 
convicts  from  the  jails  and  other  penal  institutions  of  the 
State  on  road  work,  in  getting  out  material  in  quarries,  and 
"  in  other  capacities  where  they  can  be  safely  and  con- 
veniently used,"  saying  that  this  system  had  worked  suc- 
cessfully in  the  South,  and  that  it  would  not  only  be  a 
return  to  the  State  on  the  cost  of  maintaining  its  prisoners, 
but  would  be  good  for  the  health  of  the  prisoners  them- 
selves. The  owning  and  operating  of  its  own  quarries  by 
the  State  was  suggested  as  another  means  of  reducing  the 
cost  of  road  construction. 

In  1910  the  governor  recommended  that  in  counties  where 
it  had  not  already  been  done  a  system  of  repair  of  roads 
other  than  those  comprising  a  part  of  the  state  system  be 
adopted.  "Improvement  along  this  line  is  more  vital  and 
important  than  the  improvement  of  the  main  state  high- 
ways, which  necessarily  constitute  a  very  small  part  of  the 
roads  used  by  the  people  in  the  transaction  of  everyday 
business."  This  is  true.  The  main  state  highways,  to  be 
of  greatest  value  to  agriculture,  for  instance,  must  be  sup- 
ported by  ramifications  of  smaller  roads.  For  example, 
the  Washington-Baltimore  "  pike  "  furnishes  access  to  large 
city  markets,  but  to  be  of  greater  benefit  to  the  farmer  it 
must  have  good  branch  roads.  One  farmer  remarked  that 
it  was  more  trouble  to  drive  to  the  new  state  roads  than  to 
use  the  old  roads. 


587]  GENERAL   ECONOMIC   WELFARE  1 1/ 

By  the  beginning  of  1912  the  aggregate  number  of  miles 
of  state  road  built  or  under  contract  was  333.63.  At  the 
time  of  consolidation  of  the  state  work  and  the  state  aid 
work,  169.60  miles  had  been  completed  under  the  latter  sys- 
tem. It  is  interesting  to  note  that  the  governor  in  1912 
claimed  that  Maryland  was  the  first  State  in  the  Union  to 
adopt  a  policy  of  building  the  main  arteries  of  public  travel 
solely  at  state  expense.  Demands  are  now  being  made 
upon  the  legislature  for  a  further  loan  for  carrying  on  the 
road  work.  The  necessary  amount  has  been  variously  es- 
timated. One  bill  as  drafted  fixed  the  sum  at  $6,000,000; 
the  present  governor  has  asked  for  that  amount.15  The 
cause  is  good,  and  the  construction  of  the  system,  having 
been  undertaken,  should  be  completed.  Perhaps  the  most 
important  consideration  for  the  future  is  that  careful  pro- 
vision should  be  made  for  the  preservation  of  these  roads 
after  their  construction  at  such  great  expense. 

STATE  SIDEPATH  COMMISSIONERS 

There  are  five  state  sidepath  commissioners16  appointed  by 
the  governor  for  terms  of  five  years,  who  receive  expenses 
but  no  other  compensation,  and  who  are  authorized  to 
appoint  county  boards  of  sidepath  commissioners.  They 
are  to  construct  sidepaths  along  highways  for  the  use  of 
bicycles,  and  to  charge  license  fees  for  users  of  them ;  these 
fees  go  toward  the  construction  and  repair  of  the  paths. 

COMMISSIONER  OF  MOTOR  VEHICLES 

In  1910  there  was  created  the  office  of  commissioner  of 
motor  vehicles.17  The  commissioner  is  appointed  by  the 
governor,  with  the  consent  of  the  Senate,  for  a  term  of  two 

15  At  the  present  session  of  the  legislature  efforts  have  been  made 
by  Baltimore   City  politicians   to    force  the   passage   of   a   "  pork- 
barrel  "  bill,  which,  in  providing  for  funds  for  the  roads,  would  give 
an  unusually  large  share  to  Baltimore  City. 

16  Code  1912,  art.  xci,  sec.  83  ff. 

17  Laws  1910,  ch.  207,  sec.  131 ;  Code  1912,  art.  Ivi,  sec.  133  ff. 


Il8  STATE   ADMINISTRATION    IN    MARYLAND  [588 

years,  at  a  salary  of  $3000  and  with  a  bond  of  $20,000.  He 
is  removable  by  the  governor  for  official  misconduct  or  in- 
competency.  The  governor  also  approves  his  appointment 
of  subordinates,  and  prescribes  the  number  of  hours  his 
office  in  Baltimore  shall  be  open.  Every  owner  of  a  motor 
vehicle  must,  once  a  year,  register  his  name  and  address, 
with  the  make  and  a  brief  technical  description  of  his 
vehicle,  and  receive  a  certificate,  to  be  carried  with  his 
vehicle,  and  two  metal  number  plates,  to  be  displayed  con- 
spicuously on  the  machine.  Only  one  plate  is  provided  for 
use  on  a  motorcycle.  Dealers  and  manufacturers  may  take 
out  special  licenses.  Registration  fees  run  from  $6  to  $100. 
Operators'  licenses  must  also  be  taken  out  at  the  commis- 
sioner's office. 

The  commissioner  may  revoke  or  suspend  licenses,  but 
in  case  of  refusal  to  grant  a  license  or  in  cases  of  revocation 
or  suspension  of  license,  appeal  lies  to  the  governor.  Special 
provisions  are  made  for  the  use  in  the  State  of  motor  ve- 
hicles by  registered  and  licensed  owners  and  operators  of 
other  States.  "  The  governor  is  authorized  to  confer  with 
the  proper  officers  and  legislative  bodies  of  other  States  and 
enter  into  reciprocal  agreements  under  which  the  registration 
of  motor  vehicles  owned  by  residents  of  this  State  will  be 
recognized  by  other  States ;  and  he  is  authorized  to  grant  to 
residents  of  other  States  the  privilege  of  using  the  roads  of 
this  State  as  provided  in  Maryland  laws,  in  return  for  similar 
privileges  granted  to  Maryland  residents  by  other  States." 

When  a  motor  vehicle  is  deposited  as  security  and  is  for- 
feited, the  commissioner  sells  it  at  auction.  All  fines,  pen- 
alties, and  forfeitures  of  bonds  or  vehicles  under  the  motor 
vehicle  laws  are  turned  over  to  the  commissioner,  who,  after 
deducting  necessary  expenses  of  salaries  and  office-running, 
pays  over  the  surplus  to  the  state  treasurer.  This  surplus 
is  divided  each  year;  one  fifth  goes  to  Baltimore  City  and 
four  fifths  to  the  State  and  counties,  to  be  used  for  the 
construction  and  maintenance  of  the  public  roads.  Motor 
vehicles  used  by  the  police  department,  fire  department,  or 


589]  GENERAL  ECONOMIC  WELFARE  119 

salvage  corps  of  any  village,  town,  city,  or  county,  and  all 
ambulances,  road  rollers,  street  sprinklers  or  sweepers  or 
cleaners,  and  traction  engines  used  for  hauling  agricultural 
machinery,  are  exempt  from  the  motor  vehicle  laws.  The 
commissioner  appoints  a  Maryland  citizen  to  act  as  "  motor 
vehicle  agent "  in  Washington,  D.  C. ;  he  receives  a  salary 
of  $1500,  and  issues  Maryland  motor  licenses. 

By  1912  the  Maryland  commissioner  of  motor  vehicles 
had  collected  $103,000  in  licenses.  The  governor  then  es- 
timated that  within  a  few  years  the  amount  thus  collected 
would  reach  a  sum  sufficient  to  defray  all  the  expenses  of 
the  maintenance  of  the  state  roads.  There  is  now  a  move- 
ment greatly  to  increase  the  motor  vehicle  licenses,  with 
this  end  in  view.  If  the  license  fee  is  not  made  excessively 
high,  the  system  is  logical,  considering  the  fact  that  auto- 
mobiles are  perhaps  the  most  disastrous  form  of  traffic  to 
macadam  roads.  It  has  been  recommended  that  the  work 
of  the  commissioner  of  motor  vehicles  be  consolidated  with 
that  of  the  State  Roads  Commission,  a  plan  which  is  logical, 
and  which  would  save  administration  expense. 

NATURAL  RESOURCES 

Game. — The  governor  appoints  every  two  years  a  state 
game  warden,18  who  receives  a  salary  of  $1200  and  ex- 
penses. He  enforces  the  game  and  fish  laws  of  the  State. 
With  regard  to  the  enforcement  of  the  fish  laws  the  gover- 
nor in  1908  wisely  said :  "  I  am  still  of  the  opinion  that  the 
State  Game  Warden's  duties  should  be  limited  to  the  pro- 
tecting of  game ;  the  protection  of  fish  should  be  under  the 
jurisdiction  of  the  Fish  Commissioners."  There  are  a  large 
number  of  laws  dealing  with  birds  and  game,  otters,  rac- 
coons, muskrats,  and  so  on.  Sheriffs,  constables,  officers 
of  the  State  Fishery  Force,  and  commissioned  militia  offi- 
cers may  arrest  for  violation  of  these  state  game  laws.  The 
game  warden  may  appoint,  subject  to  the  approval  of  the 

18  Code  1912,  art.  xcix,  sec.  i  ff. 


I2O  "     STATE  ADMINISTRATION   IN    MARYLAND  [590 

governor,  deputy  game  wardens,  who  receive  as  compensa- 
tion a  portion  of  the  fines.  The  game  warden  may  call 
on  the  State  Fishery  Force  for  assistance,  through  the 
governor  and  the  Board  of  Public  Works.  There  are  also 
laws  for  the  preservation  of  diamondback  terrapins,  re- 
stricting the  catching,  regarding  the  size,  the  season,  and  so 
on,  and  prohibiting  the  destruction  of  the  eggs;  they  are 
enforceable  by  game  wardens,  constables,  and  officers  ot 
the  State  Fishery  Force.19 

Lack  of  funds  has  always  been  a  complaint  in  the  game 
warden's  office.  Fines  for  violation  have  amounted  to 
almost  nothing,  and  the  appropriation  has  always  been  small, 
in  1913  being  $2600.  We  quote  from  the  game  warden's 
report  of  that  year : 

The  real  determent  to  a  proper  administration  of  this  department 
is  the  meagre  sum  appropriated  for  its  purposes.  It  will  readily 
be  appreciated,  by  anyone  giving  thought  to  the  subject,  that  $2,600.00 
a  year  is  an  insignificant  and  totally  inadequate  sum  to  be  appro- 
priated by  the  State  for  game  and  fish  protection,  if  there  is  any 
real  intention  to  protect  the  same. 

This  sum  does  not,  of  course,  warrant  anything  in  the  nature  of  a 
paid  deputy  game  warden  system.  .  .  . 

One  of  the  greatest  drawbacks  to  game  and  fish  protection  in 
Maryland  is  the  multiplicity  of  local  laws — laws  probably  meant  to 
protect,  but  which  experience  has  proven  to  be  one  of  the  greatest 
means  of  extermination. 

The  warden  recommends  a  uniform  system  of  game  laws, 
a  state- wide  gunners'  license  law,  a  uniform  non-resident 
gunners'  license  law,  a  paid  game  warden  system,  a  giving 
to  wardens  the  right  of  search,  and  the  making  of  state 
laws  conform  to  federal  game  laws. 

Fish  and  Oysters. — There  are  two  commissioners  of  fish- 
eries,20 one  from  the  Eastern  and  one  from  the  Western 
Shore,  appointed  by  the  governor  with  the  consent  of  the 
Senate  for  terms  of  two  years,  and  with  salaries  of  $1500 
each.  They  inspect  all  waters  of  the  State  with  a  view  to 
stocking  them  with  fish,  and  propagate  the  fish  for  this 
purpose.  They  keep  in  communication  with  the  United 
States  commissioner  of  fisheries  and  with  the  fish  commis- 

19  Code  1912,  art.  xcii,  sec.  I  ff. 

20  Ibid.,  art.  xxxix,  sec.  I  ff. 


59 1 ]  GENERAL   ECONOMIC  WELFARE  121 

sions  of  other  States.  They  are  charged  with  construct- 
ing fishways  or  fish-ladders  to  admit  the  passage  of  fish 
over  dams  and  other  obstructions  in  the  upper  Potomac 
and  in  other  rivers  and  streams  in  the  State.  It  was  pro- 
vided in  one  act  that  they  should  examine  into  the  expedi- 
ency of  cutting  a  channel  around  the  Great  Falls  of  the 
Potomac  to  admit  the  passage  of  fish  from  tidewater  into 
the  upper  Potomac,  but  this  channel  has  never  been  cut. 
It  is  also  especially  provided  that  they  are  to  do  everything 
possible  to  exterminate  eels.  They  report  annually  to  the 
governor,  and  make  suggestions  for  legislation  for  the  prop- 
agation and  protection  of  food  fish  in  the  State.  The  gover- 
nor transmits  this  report  to  the  legislature.  Ten  thousand 
dollars,  or  as  much  of  it  as  the  governor  thinks  necessary, 
is  appropriated  annually  for  their  work.  A  system  of 
licensing  is  laid  down  by  the  Maryland  laws  for  certain 
kinds  of  fishing  (for  example,  by  net),  for  selling  fish,  and 
so  on ;  these  licenses  are  obtained  from  the  court  clerks,  and 
penalties  for  violations  are  provided. 

The  oyster21  legislation  in  Maryland  has  been  copious,  and 
regulates  tonging,  culling,  dredging,  packing,  and  time  for 
taking  oysters,  as  well  as  the  locating  of  private  oyster  lots. 
Licenses  must  be  taken  out  from  court  clerks  for  tonging, 
dredging,  and  packing.  License  fees  go  to  the  credit  of 
the  "oyster  fund." 

There  are  three  bodies  of  officers  who  have  to  do  with 
the  oyster  industry  in  the  State:  the  State  Fishery  Force; 
general  measurers  and  inspectors,  under  the  commander  of 
the  State  Fishery  Force,  and  really  a  part  of  that  same 
branch,  and  the  Shellfish  Commission.  The  State  Fishery 
Force  is  under  the  Board  of  Public  Works.  It  appoints  a 
commander  of  the  force,  who  has  charge  of  one  steamer 
regularly  in  commission.  Deputy  commanders  for  various 
oyster  boats,  who  appoint  their  own  subordinates  and  crews, 
are  commissioned  by  the  governor.  No  commander  or  dep- 
uty commander  may  be  interested  financially  in  a  scrape  or 

21  Code  1912,  art  Ixxii. 


122  STATE   ADMINISTRATION    IN    MARYLAND  [592 

dredge  boat.  The  Board  of  Public  Works  buys  arms  and 
ammunition  for  the  boats.  The  state  waters  are  divided 
into  seven  districts,  each  with  a  prescribed  number  of  guard 
boats ;  but  any  guard  boat  may  be  used  in  any  part  of  the 
State  by  order  of  the  Board  of  Public  Works  or  of  the 
commander.  The  board  may  remove  any  officer  of  the 
force  for  neglect  or  incompetence;  the  commander  may 
suspend  any  officer;  the  commanding  officers  may  remove 
subordinates  and  fill  their  places. 

It  is  the  duty  of  the  force  to  prevent  violations  of  the 
oyster  and  fish  laws.  The  commander  has  control  of  the 
entire  force,  and  under  the  supervision  of  the  Board  of 
Public  Works  has  power  to  direct  its  movements;  he  has 
an  office  in  Annapolis,  and  a  clerk  who  remains  there  issues 
the  necessary  orders  to  the  force,  consults  with  the  com- 
mander, and  in  the  latter's  absence  makes  monthly  reports. 
At  this  office  are  received  all  complaints  and  all  applications 
for  assistance.  The  commander  receives  a  salary  of  $1500. 
Financial  reports  must  be  made  monthly  to  the  Board  of 
Public  Works. 

At  each  session  of  the  General  Assembly  the  governor 
appoints  nine  "  general  measurers  and  inspectors,"  four  for 
Baltimore  City  and  five  for  other  districts  of  the  State. 
The  commander  of  the  State  Fishery  Force  appoints  not 
over  twenty  "  special  inspectors "  at  the  beginning  of  the 
oyster  season  every  year,  whom  he  may  remove  for  cause. 
To  help  defray  expenses,  a  small  charge  is  levied  on  all 
oysters  unloaded  and  sold,  that  is,  one  cent  per  bushel, — 
one  half  cent  from  the  buyer  and  one  half  cent  from  the 
seller.  The  inspectors  inspect  and  certify  the  quantity  of 
merchantable  and  unmerchantable  oysters  unloaded. 

The  commander  has  general  control  of  general  measurers 
and  inspectors  and  special  inspectors,  whether  appointed  by 
himself  or  not.  The  general  measurers  and  inspectors  su- 
pervise inspections  made  by  the  subordinate  inspectors,  and 
are  also  especially  charged  with  inspecting  all  oyster  meas- 
ures; they  have  the  power  to  enter  premises  and  arrest 


593]  GENERAL   ECONOMIC  WELFARE  123 

violators.  They  must  return  annually  to  the  comptroller  a 
statement  of  the  quantity  of  oysters  measured  in  their  re- 
spective districts.  All  inspectors  report  monthly  to  the 
commander  of  the  State  Fishery  Force.  Private  measurers 
in-  Baltimore  city  must  take  out  licenses  to  do  business,  and 
any  one  of  them  may,  if  a  charge  is  pending  against  him 
for  violation  of  the  laws  concerning  oysters  and  their  qual- 
ity and  measuring,  be  suspended  from  business  by  the 
general  measurers  and  inspectors  in  Baltimore  City. 

In  1906  there  was  enacted  an  "  oyster-culture  "  measure, 
known  as  the  Haman  law,22  by  which  residents,  but  not 
corporations,  may  lease  private  oyster  beds.  Until  that 
time  all  oysters  had  been  taken  by  tongers,  and  there  existed 
many  "  barren  bottoms  "  in  state  waters  which  might  well 
produce  oysters  if  they  were  cultivated.  This  would  bring 
profit  to  the  individuals  who  undertook  the  culture,  would 
increase  the  oyster  industry  and  thereby  the  prosperity  of 
the  State,  and  would  incidentally  bring  revenue  into  the 
state  treasury.  The  idea  was  to  make  a  survey  of  all  the 
oyster  beds  and  barren  bottoms  of  the  State,  to  reserve  to 
the  tongers  all  of  the  natural  beds  which  they  had  hitherto 
had  the  privilege  of  using,  but  to  lease  the  barren  bottoms 
at  small  rentals  to  individuals  who  would  undertake  oyster 
farming.  For  the  purpose  of  making  the  survey  and  estab- 
lishing the  system  of  leasing,  a  Board  of  Shellfish  Com- 
missioners was  created. 

The  Board  of  Shellfish  Commissioners  consists  of  three 
members  appointed  by  the  Board  of  Public  Works,  one  from 
some  tidewater  county  of  the  Eastern  Shore,  one  from  a 
tidewater  county  of  the  Western  Shore,  and  one  from  Bal- 
timore City;  one  of  them  must  be  of  the  minority  party. 
Their  term  is  two  years ;  and  none  of  them  is  to  be  inter- 
ested in  any  land  taken  up  for  bedding,  planting,  or  culti- 
vating oysters ;  one  member  is  designated  by  the  Board  of 
Public  Works  at  a  salary  of  $2000,  and  the  others  receive 
$1800.  The  commissioners  employ  clerks  and  assistants 

22  Laws  1906,  ch.  711. 


124  STATE  ADMINISTRATION    IN    MARYLAND  [594 

and  a  surveyor  who  is  also  a  hydrographic  engineer  and 
who  receives  $2500.  If  he  is  also  a  biologist,  capable  of 
investigating  oyster  propagation,  the  sum  of  $500  is  ap- 
propriated for  such  investigation  by  him,  including  the  es- 
tablishing of  one  or  more  "  stations."  The  expenses  of  the 
commission  are  paid  from  tlie  revenues  arising  from  the 
leasing  of  land  for  oyster  culture;  an  office  is  provided  at 
Annapolis. 

A  survey  of  the  natural  oyster  beds,  bars,  and  rocks,  and 
the  delineation  of  it  on  copies  of  United  States  Coast  and 
Geodetic  Survey  maps,  was  ordered  made,  marking  off  defi- 
nitely the  natural  beds  from  the  then  barren  ones  which 
were  to  be  leased.  The  commissioners  were  given  power 
to  call  to  their  assistance  any  county  surveyor,  paying  him 
legal  rates  for  his  services.  Crab  bottoms  were  to  be  de- 
lineated as  well  as  oyster  bottoms.  One  steamer  of  the 
State  Fishery  Force,  under  command  of  the  deputy  com- 
mander, was  put  under  the  control  of  the  commission  from 
April  to  October  of  every  year. 

A  leasing  system  was  provided  by  law,  with  certain  set 
rates  and  periods.  All  revenues  arising  from  this  system 
were  appropriated  to  the  commission  for  its  expenses,  the 
surplus  to  go  into  the  state  treasury  to  the  credit  of  the 
Special  Road  Fund.  The  commission  prepares  annual  re- 
ports in  the  form  of  published  pamphlets,  including  finan- 
cial statements  and  recommendations  for  legislation.  In 
iQoS23  the  commission  was  also  charged  with  surveying  the 
clam-rocks  of  Pocomoke  Sound  in  Somerset  County  and 
delineating  them  on  the  map  already  mentioned ;  these  rocks 
were  to  be  set  aside,  like  the  natural  oyster  beds,  for  the 
use  of  the  public. 

For  a  while  the  oyster-culture  system  seemed  to  work 
well.  In  1908  the  governor  said:  "The  Haman  plan  of 
leasing  the  barren  bottoms  of  the  Chesapeake  Bay  and  its 
tributaries,  on  fair  rentals,  the  revenues  from  which  shall 
be  applied  to  the  building  of  good  roads  in  Maryland,  has 
already  been  more  than  justified." 

23  Laws  1908,  ch.  590. 


595]  GENERAL   ECONOMIC   WELFARE  125 

In  1912  the  governor  stated  that  the  system  established 
by  this  act  of  1906 

fully  protects  in  every  way  the  interest  of  those  engaged  in  tonging 
and  dredging  oysters,  by  the  reservation  for  all  time  to  this  class 
of  our  citizenship,  of  the  free  and  exclusive  use  of  the  natural  oyster 
area  of  the  State,  and  is  the  most  thorough  oyster  survey  that  has 
ever  been  made  in  any  State  in  the  Union. 

And  for  the  first  time  in  the  history  of  Maryland,  a  condition 
prevails  whereby  private  planting  on  barren  areas  in  the  Chesapeake 
Bay  and  its  tributaries  can  be  fairly  and  impartially  tested  without 
in  any  manner  conflicting  with  the  rights  of  oystermen,  or  ever 
arousing  a  suspicion  on  their  part  of  any  possible  interference  with 
their  ancient  privileges. 

In  1912  the  commission  reported  the  survey  completed. 
As  a  survey  measure  they  stated  that  the  act  of  1906  was 
wholly  satisfactory,  but  as  an  oyster-culture  measure,  un- 
satisfactory. It  is  to  be  remarked,  however,  that  the  de- 
fects pointed  out  were  of  concern  to  the  State  and  to  the 
oyster  culturists,  and  were  not  in  line  with  arguments  which 
had  been  made  by  the  tonging  element  in  criticism  of  the 
Haman  act. 

At  the  present  time  the  question  of  oyster  culture  has 
become  acute.  There  had  been  a  growing  dissatisfaction 
with  the  system  on  the  part  of  the  oystermen,  or  tongers, 
which  led  in  the  latter  part  of  1913  to  a  so-called  "oyster- 
war."  This  was  due  to  the  fact  that  the  tongers  resented 
having  been  excluded  from  any  oyster  bottoms  of  the  State. 
There  has  been  much  agitation  and  much  propaganda  on 
both  sides,  and  at  the  present  (1914)  session  of  the  legis- 
lature efforts  are  being  made  to  have  the  Haman  law  re- 
pealed, which  efforts  in  turn  are  being  opposed  by  the  so- 
called  proculturists.  The  contention  of  the  oystermen  is 
that  it  is  their  natural  right  to  have  the  use  of  all  oyster 
bottoms  in  the  State.  Incidentally  they  argue  that  in  some 
cases  the  survey  has  classed  as  barren  bottoms,  and  there- 
fore as  bottoms  leasable  by  the  State,  certain  bottoms 
which  were  natural  beds ;  also  that  the  oyster-culture  system 
has  not  been  a  success,  that  few  persons  have  leased  bottoms, 
and  that  little  revenue  has  accrued  to  the  State  from  the 
system.  But  these  conditions,  if  true,  indicate  mistakes  in 


126  STATE   ADMINISTRATION    IN    MARYLAND  [596 

method  and  not  in  principle.  That  the  tongers'  arguments 
are  wrong  in  principle  is  very  obvious,  for  no  such  group 
of  persons  can  possess  the  inalienable  rights  to  property  not 
their  own  which  they  claim.  And  that  their  arguments  are 
wrong  in  general  practice  may  be  demonstrated  by  the 
splendid  results  obtained  in  other  States  from  oyster-cul- 
ture systems,  as,  for  instance,  in  Rhode  Island  and  Virginia. 
If  it  be  granted,  as  perhaps  it  must  be,  that  the  culture 
system  has  not  been  a  great  success  in  Maryland,  the  rem- 
edy for  this  is  very  apparently  correction  of  the  system 
rather  than  abolition  of  it. 

In  concluding  this  section  on  the  administration  of  the 
fish  and  oyster  industries  in  Maryland,  the  need  of  con- 
solidation may  be  emphasized.  The  scattering  of  identical 
or  similar  duties  among  so  many  different  departments  is 
unnecessary.  It  would  seem  wise  to  take  from  the  state 
game  warden  all  enforcement  of  fish  laws,  and  to  give  this 
work  to  a  new  central  department,  which  would  consist  of 
a  consolidation  of  the  other  three  branches,  namely,  the 
State  Fishery  Force,  the  commissioners  of  fisheries,  and 
the  Board  of  Shellfish  Commissioners. 

Agriculture. — Under  this  head  will  be  considered  the  Live 
Stock  Sanitary  Board  and  the  chief  veterinary  inspector,  or 
state  veterinarian,  the  tobacco  warehouses,  and  the  agri- 
cultural work  done  under  the  board  of  trustees  of  the  Mary- 
land Agricultural  College. 

The  governor  appoints,  with  the  consent  of  the  Senate, 
the  three  members  of  the  Live  Stock  Sanitary  Board,24  who 
must  be  engaged  in  breeding  live  stock.  Their  term  is  two 
years  and  their  compensation  five  dollars  a  day,  plus  ex- 
penses, for  actual  time.  The  duty  of  the  board  is  to  "  pro- 
tect the  health  of  the  domestic  animals  of  the  State."  The 
board  has  power  to  establish  quarantine,  sanitary,  and  other 
regulations,  and  to  prevent  the  introduction  into  the  State 
of  diseased  animals  by  requesting  the  governor  to  proclaim 
a  quarantine  on  animals  from  certain  States.  The  local 

24  Code  1912,  art  Iviii,  sec.  i  S. 


597]  GENERAL   ECONOMIC   WELFARE  1 2/ 

boards  of  health  are  charged  with  investigating  live  stock 
diseases  and  reporting  immediately  to  the  board. 

The  governor  appoints  a  chief  veterinary  inspector,25  who 
must  be  a  graduate  of  a  recognized  school  of  veterinary 
medicine,  and  who  receives  $1000  and  expenses  and  has 
under  him  assistant  inspectors.  His  work  is  to  visit  farms, 
stables,  and  railway  cars,  and  to  make  regulations  for  the 
isolation,  disinfection,  destruction,  or  quarantine  of  animals. 
Sheriffs  and  constables  are  to  cooperate  with  him  in  carrying 
out  his  orders.  He  also  superintends  the  slaughter  of 
diseased  animals  at  regular  slaughter  houses.  His  work  is 
intimately  connected  with  that  of  the  Live  Stock  Sanitary 
Board. 

All  veterinary  practitioners  must  report  to  the  board  cases 
of  contagious  live-stock  disease.  Only  by  permission  of 
the  board  may  an  animal  be  inoculated  with  the  virus  of 
a  contagious  disease.  The  law  specifically  prohibits  the 
exposure  or  sale  of  infected  animals.  Infected  animals, 
buildings,  and  feeds  are  appraised  and  destroyed.  The 
appraisal  is  made  by  two  persons,  one  appointed  by  the  in- 
spector and  one  by  the  owner,  or,  if  the  owner  neglects  to 
appoint,  both  persons  are  designated  by  the  inspector;  and 
in  case  of  disagreement,  these  two  appraisers  appoint  a 
third.  Appeal  lies  to  the  circuit  court.  The  Live  Stock 
Board  is  to  cooperate  with  the  Bureau  of  Animal  Industry 
of  the  United  States  Department  of  Agriculture.  In  the 
case  of  an  epidemic  it  may  appoint  special  assistants  to  the 
chief  veterinary  inspector. 

All  persons  supplying  milk  to  cities,  towns,  and  villages 
must  register  their  herds  with  the  board,  which  at  least 
annually  must,  without  notice,  have  such  dairies  inspected, 
and,  if  any  one  of  them  is  found  insanitary,  prohibit  further 
sale  of  milk  from  it  until  the  premises  conform  to  certain 
sanitary  rules.  The  board  furnishes  dairies  with  certificates 
of  health,  which  it  may  revoke  at  discretion.26 

25  Code  1912,  art.  Iviii,  sec.  5  ff. 

26  Ibid.,  sec.  20  ff. 


128  STATE   ADMINISTRATION    IN    MARYLAND  [598 

The  importation  of  dairy  or  meat  cattle  into  Maryland  is 
prohibited  without  a  certificate  of  health  from  the  proper 
officers  of  the  State  from  which  they  came.  Cattle  sent  in 
without  this  are  held  by  the  State  and  examined  at  the 
expense  of  the  owner. 

In  1902"  a  commission  termed  the  "  Cerebro-Spinal- 
Meningitis  in  Horses  Commission"  was  created,  with  five 
members  appointed  by  the  governor,  including  the  professor 
of  pathology  in  the  Johns  Hopkins  University  and  the 
veterinarian  of  the  Maryland  Agricultural  College.  Its 
duty  as  outlined  was  investigation  of  the  cause,  origin,  treat- 
ment, prevention,  and  cure  of  cerebro-spinal  meningitis  in 
Maryland  horses.  No  salaries  were  provided,  but  expenses 
were  to  be  paid  from  an  appropriated  sum  of  $2000.  In 
1906  an  act  extended  the  powers  of  the  commission  to  other 
diseases  of  horses  and  cattle,  to  include  the  "  investigation  of 
immunization  of  cattle  against  contagious  diseases." 

In  Maryland's  treatment  of  horses,  cattle,  and  other  farm 
animals  we  find  another  example  of  administrative  disin- 
tegration. This  last  named  commission  was  created  while 
there  were  two  other  departments  dealing  with  almost  the 
same  subject.  In  addition  to  these  offices  there  is  also  a 
Maryland  Agricultural  College  veterinarian. 

In  1908  the  State  Live  Stock  Sanitary  Board  recom- 
mended the  passage  of  a  law  providing  that  every  owner, 
manager,  or  operator  of  a  creamery  should,  before  deliver- 
ing any  skimmed  milk,  cause  it  to  be  pasteurized  at  a  tem- 
perature of  at  least  185  degrees  Fahrenheit.  This  recom- 
mendation raised  still  another  question  of  jurisdiction.  We 
find  the  Live  Stock  Board  attempting  to  regulate  the  purity 
of  milk,  and  we  have  already  seen  that  the  State  Health 
Department  has  a  similar  task.  Of  course,  the  value  of  a 
live  stock  sanitary  board  is  not  questioned,  and  it  should 
cooperate  with  the  Health  Department  and  all  departments 
on  whose  spheres  it  borders.  But  these  should  be  distinctly 
outlined  and  should  not  needlessly  overlap. 

27  Code  1912,  art.  xliii,  sec.  192. 


599]  GENERAL   ECONOMIC   WELFARE  129 

The  governor  every  two  years  appoints  with  the  consent 
of  the  Senate  an  inspector  of  tobacco,28  who  must  be  a 
tobacco  grower  and  a  resident  of  one  of  the  tobacco-growing 
counties  of  the  State.  His  salary  is  $2000  and  his  bond 
$30,000.  He  has  charge  of  the  state  tobacco  warehouses  in 
Baltimore  City.  He  inspects  all  tobacco  brought  there, 
either  personally  or  through  "  samplers  "  over  whom  he  has 
complete  charge.  He  may  sell  tobacco  which  he  has  raised, 
but  he  and  his  employes  are  prohibited  from  engaging  in  the 
business  of  buying  and  selling  tobacco.  He  appoints  clerks, 
samplers,  laborers,  and  other  employes ;  and  in  this  duty  he 
is  charged  with  apportioning  the  patronage  at  his  disposal 
equitably  among  the  inhabitants  of  the  tobacco-growing 
counties.  All  salaries  and  expenses  are  paid  out  of  the 
receipts  of  office.  The  inspector  makes  quarterly  reports 
to  the  comptroller,  and  annually  pays  to  the  comptroller  all 
surplus  revenue.  In  his  absence  the  chief  clerk  acts  as  chief 
inspector.  The  inspector  receives  all  tobacco  delivered  at 
any  of  the  warehouses  in  Baltimore  City  and  gives  receipt 
for  it. 

There  are  detailed  provisions  for  the  storage,  weighing, 
inspection,  and  marking  of  all  tobacco  delivered  to  these 
warehouses.  In  case  of  a  dispute  concerning  the  correct- 
ness of  the  sample  furnished  to  the  inspector  a  decision  is 
rendered  by  an  arbitration  committee,  one  member  of  which 
is  appointed  by  the  inspector,  one  by  the  claimant,  and  a 
third  by  these  two.  This  committee  has  the  power  of  hold- 
ing investigation,  summoning  witnesses,  administering 
oaths,  and  assessing  damages  ;  from  it  there  is  no  appeal.  A 
similar  arbitration  method  is  followed  when  the  owner  be- 
lieves his  tobacco  to  be  incorrectly  sampled.  In  this  case 
the  committee  requires  the  resampling  of  the  tobacco,  and, 
if  the  original  sampling  is  proved  incorrect,  a  correct  sample 
is  substituted.  If  the  original  sample  was  correct,  the  cost 
of  resampling  is  borne  by  the  owner.  An  inspector  may 
repack  tobacco  at  the  expense  of  the  owner  if  it  is  "  trash," 

28  Code  1912,  art.  xlviii,  sec.  9  ff. 
9 


I3O  STATE   ADMINISTRATION   IN    MARYLAND  [6oO 

or  if  it  is  falsely  packed  or  is  packed  in  unseasoned  timber. 
If  tobacco  is  delivered  improperly  coopered,  it  is  coopered 
at  the  owner's  expense.  All  scrap  tobacco  accumulating  at 
the  warehouses  is  sold  for  the  benefit  of  the  tobacco  fund. 

No  tobacco  grown  in  Maryland  "  shall  be  passed  or  ac- 
counted lawful  tobacco  "  unless  it  measures  up  to  the  speci- 
fications of  the  tobacco  laws  regarding  packing,  and  so  on, 
but  any  grower  or  owner  may  sell  his  tobacco  without  in- 
spection or  storage  at  the  state  warehouses.  An  owner  or 
grower  may  also  store  such  tobacco  in  a  state  warehouse 
without  inspection  and  simply  pay  storage  charges.  Grow- 
ers sending  their  tobacco  to  the  warehouses  are  not  charged 
storage  rates  for  it  unless  it  is  left  in  the  warehouse  for 
over  six  months  after  it  is  sold.  In  the  absence  of  the  state 
wharfinger  the  inspector  of  tobacco  has  a  certain  supervision 
over  the  wharves.  Vessels  with  tobacco  for  the  state  ware- 
houses are  to  be  given  preference  over  others  at  the  wharves. 
If  the  state  warehouses  are  crowded,  the  inspector  may  rent 
other  storage  quarters. 

In  1910  the  tobacco  inspector  reported  $7000  in  bank,  in 
addition  to  $4000  paid  into  the  treasury ;  and  also  reported 
that  a  new  warehouse,  the  erection  of  which  was  authorized 
by  the  legislature  of  1908,  was  nearly  completed.  In  1912 
he  stated  that  he  would  pay  into  the  treasury  $24,000. 
From  this  it  is  seen  that  the  Maryland  system  of  tobacco 
inspection  and  storage  is  not  only  beneficial  to  tobacco  grow- 
ers, but  is  also  profitable  to  the  State. 

The  constitution  of  1867  created  the  office  of  superin- 
tendent of  labor  and  agriculture,  to  which  a  superintendent 
was  elected  for  four  years  at  a  salary  of  $2500.  He  was  to 
supervise  the  state  inspectors  of  agricultural  products  and 
fertilizers,  and  to  prescribe  regulations  for  them  and  audit 
their  accounts ;  to  supervise  the  tobacco  warehouses  and  all 
other  storage  and  inspection  buildings  of  the  State;  to  in- 
quire into  the  undeveloped  resources  of  the  State,  par- 
ticularly those  of  Chesapeake  Bay  and  its  tributaries,  and  to 


6oi]  GENERAL   ECONOMIC   WELFARE  13! 

suggest  plans  to  render  them  available  as  sources  of  revenue. 
He  might  be  given  supervision  over  other  state  buildings 
than  those  mentioned ;  he  was  to  report  to  the  General  As- 
sembly. This  office  was  created  so  as  to  continue  for  four 
years  and  then  to  terminate  unless  continued  by  the  General 
Assembly.  It  passed  out  of  existence.  The  numerous 
matters  put  under  the  supervision  of  this  superintendent 
have  become  differentiated.  For  instance,  we  have  seen 
how  the  tobacco  warehouses  are  now  under  an  inspector  of 
tobacco. 

Since  1888  the  greater  part  of  agricultural  administration 
has  been  carried  on  by  the  Maryland  Agricultural  College 
and  by  the  Maryland  Experiment  Station,  the  latter  of 
which  is  a  distinct  institution,  but  which  has  been  put  by  the 
State  under  the  control  of  the  board  of  trustees  of  the 
college  and  is  inseparably  associated  with  the  college.  The 
two  institutions  cooperate  almost  as  a  unit,  and  many  of  the 
scientists  connected  with  the  station  are  members  of  the 
college  faculty. 

The  board  of  trustees  of  the  Maryland  Agricultural  Col- 
lege was  recently  given  the  official  designation,  "  State  Board 
of  Agriculture."29  The  director  of  the  Experiment  Station 
is  ex  officio  secretary  of  this  State  Board  of  Agriculture, 
and  is  its  executive  officer.  It  is  also  interesting  to  remark 
in  this  connection  that  the  recently  chosen  president  of  the 
college,  who  was  previously  director  of  the  station,  retained 
the  headship  of  both  institutions.  The  Maryland  Agricul- 
tural Experiment  Station,  spoken  of  in  the  law  as  a  "  de- 
partment of  the  Maryland  Agricultural  College,"  is  desig- 
nated to  receive  the  Maryland  share  of  the  federal  appro- 
priations for  agricultural  investigation,  under  the  Adams 
Bill  (H.  R.  345,  59th  Congress,  ist  Session). 

The  Experiment  Station,  through  its  many  "  Departments 
of  Investigation"  and  its  "Extension  Work,"  has  been  a 
great  factor  in  improving  the  agricultural  resources  of  the 
State,  and,  in  spite  of  meagre  support,  has  caused  farm 

29  Code  1912,  art.  HA,  sees,  i  ff. 


132  STATE   ADMINISTRATION    IN    MARYLAND  [6O2 

lands  and  production  to  increase  in  value,  according  to  gov- 
ernment reports,  approximately  $28,616,702  during  the  last 
ten  years.30  It  must  be  remembered,  before  proceeding  to 
a  description  of  the  departments  of  the  Experiment  Station, 
that  the  appropriations  for  their  work  and  those  for  the 
college  are  entirely  separate. 

The  State  Horticultural  Department31  of  the  Experi- 
ment Station  was  established  in  iSgS32  for  the  purpose  of 
suppressing  and  eradicating  the  San  Jose  scale,  peach 
yellows,  pear  blight,  and  other  injurious  insect  pests  and 
plant  diseases.  The  professor  of  entomology  at  the  Mary- 
land Agricultural  College  is  the  state  entomologist,  the  pro- 
fessor of  vegetable  pathology  is  state  pathologist,  and  the 
professor  of  horticulture  is  state  horticulturist ;  these  persons 
are  responsible  to  the  trustees  of  the  college  and  Experi- 
ment Station,  who  fix  their  salaries  and  control  all  the  ex- 
penses of  their  departments,  including  compensation  of 
assistants.  These  officers  are  authorized  to  inspect  and 
treat  or  destroy  trees  and  plants  throughout  the  State  on 
public  land.  If  they  find  infested  trees  or  plants  on  private 
property,  they  tag  them  and  notify  the  owner;  if  their  orders 
are  not  complied  with  within  ten  days,  the  department  treats 
or  destroys  the  affected  trees  or  plants  and  sends  the  bill  to 
the  state's  attorney  of  the  county,  who  collects  the  bill  for 
the  work.  This  latter  seldom  happens,  as  horticulturists  of 
the  State  are  glad  to  cooperate  with  the  horticultural  de- 
partment. 

At  least  once  a  year  either  the  entomologist  or  the  patholo- 
gist or  some  authorized  assistant  must  go  into  each  county 
and  determine  the  healthfulness  of  general  agricultural  con- 
ditions. One  of  these  officers  is  also  required  every  six 
months  to  inspect  every  nursery  in  the  State;  if  he  finds  no 
pests  or  diseases,  he  issues  a  certificate  to  the  owner ;  if  such 
are  found,  he  treats  or  destroys  at  the  owner's  expense  and 

30  From  pamphlet,  "  Facts  Concerning  the  Maryland  Agricultural 
College,"  being  an  extract  from  President  H.  J.  Patterson's  address 
before  the  General  Assembly,  1914. 

31  Code  1912,  art.  xlviii,  sec.  50  ff. 

32  Patterson. 


603]  GENERAL   ECONOMIC   WELFARE  133 

issues  a  certificate  for  the  remainder  of  the  stock.  A 
nurseryman  in  disposing  of  his  stock  in  any  way,  by  sale  or 
gift,  must  accompany  each  shipment  with  a  copy  of  this 
certificate.  All  the  nursery  stock  in  the  State  must  be  fumi- 
gated with  hydrocyanic  acid  gas  under  the  direction  of 
officers  of  the  horticultural  department.  When  nursery 
stock  is  shipped  into  the  State,  it  must  bear  on  the  packing 
a  certificate  of  inspection  of  some  competent  officer  of  the 
State  from  which  it  comes.  If  it  does  not,  the  transporta- 
tion company  or  the  person  receiving  it  notifies  the  state 
entomologist  or  pathologist.  The  matter  is  then  brought 
before  a  justice  of  the  peace,  and  if  it  is  proved  that  the 
stock  was  not  properly  inspected  it  is  returned,  unless  the 
person  receiving  it  has  it  satisfactorily  inspected  by  Mary- 
land officers  at  his  own  expense.  Otherwise,  the  stock  is 
destroyed.  If  a  nurseryman  of  another  State  ships  infested 
stock  into  Maryland  and  it  is  condemned  by  the  proper 
officers,  he  forfeits  its  value  and  the  consignee  need  not 
pay  him. 

The  entomologist  and  the  pathologist  annually  submit  re- 
ports of  their  inspections  and  investigations  to  the  board  of 
trustees  ;  these  are  transmitted  to  the  governor  and  the  Gen- 
eral Assembly,  and  are  published  and  distributed  among  the 
people  of  the  State  as  bulletins  of  the  Experiment  Station. 

The  provisions  requiring  yearly  inspection  in  every  county 
are  apparently  not  rigidly  carried  out;  but  often  this  may 
not  be  necessary.  In  1908  the  department  reported  that  in 
1907  twenty-one  counties  had  been  entered,  and  1,664,932 
trees  had  been  inspected.  "Of  these  ten  per  cent  were 
infested  with  the  San  Jose  scale.  This  represents  a  decreas- 
ing area  of  infestation,  and  better  control  of  the  pest."  The 
thoroughness  and  the  benefit  of  the  work  of  this  and  similar 
inspection  departments  are  not  to  be  doubted.  A  recent 
striking  case  is  cited  by  the  director  of  the  station,  in  which 
a  fruit  grower,  upon  advice  of  the  horticultural  department, 
invested  $2000  in  the  proper  spraying  of  his  peach  trees, 
and  cleared  $25,000  on  his  peach  crop,  instead  of  having  it 


134  STATE   ADMINISTRATION    IN    MARYLAND  [604 

totally  destroyed  by  brown  rot.  This  is  indicative  of  the 
many  thousands  of  dollars  that  are  saved  through  the  ad- 
ministration of  this  department. 

The  inspection  of  fertilizers33  was  placed  in  i8948*  under 
the  state  chemist,  who  is  professor  of  chemistry  at  the  Mary- 
land Agricultural  College.  A  yearly  license  must  be  ob- 
tained from  the  comptroller  to  manufacture  or  sell  fertilizer, 
and  there  is  also  a  provision  for  registration  with  the  state 
chemist.  Fertilizer  bags  must  be  stamped  with  the  name 
and  address  of  the  manufacturer  or  importer,  with  the 
trademark,  and  a  statement  of  ingredients.  The  state 
chemist  analyzes,  free  of  charge,  samples  of  fertilizer  sent 
to  him  by  any  consumer;  and  he  is  also,  through  his  as- 
sistants, to  obtain  samples  "  as  far  as  practicable  every  year, 
of  all  fertilizers  sold  and  used  in  the  State."  He  is  author- 
ized to  take  such  samples  from  fertilizer  in  transit.  All 
these  samples  are  analyzed  and  reports,  which  include  a 
chemical  statement  of  ingredients  and  also  a  statement  of 
the  commercial  value,  are  made  to  the  persons  from  whom 
they  were  received  or  taken.  From  time  to  time  published 
reports  are  made,  showing  the  results  of  analyses.  The 
funds  received  from  the  fifteen  dollar  license  fees  are  used 
for  the  expenses  of  the  state  chemist. 

There  have  been  certain  exemptions  from  these  regula- 
tions, and  in  igi2S5  the  rules  were  somewhat  changed. 
Fertilizer  selling  for  less  than  eight  dollars  a  ton  is  excluded, 
as  are  ground  gypsum,  dung,  and  fertilizers  mixed  to  order. 
In  the  same  year36  special  provisions,  similar  to  those  for 
the  inspection  of  fertilizers,  were  made  for  the  inspection  by 
the  state  chemist  of  agricultural  lime;  such  lime  must  be 
properly  labelled  and  is  subject  to  inspection. 

Manufacturers  of  concentrated  commercial  feed  stuffs37 

33  Code  1912,  art.  Ixi,  sec.  I  ff. 

34  Patterson. 

35  Laws  1912,  ch.  212. 
86  Ibid.,  ch.  176. 

37  Code  1912,  art.  xlviii,  sec.  80  ff.     See  also  Patterson. 


605]  GENERAL   ECONOMIC   WELFARE  135 

for  farm  live  stock  and  poultry  must  label  their  products, 
as  must  manufacturers  of  fertilizers;  but  this  does  not  in- 
clude hays,  straws,  and  certain  unmixed  seeds  and  meals 
like  wheat  and  barley.  Before  the  manufacturer  of  com- 
mercial feed  stuffs  disposes  of  any  of  his  product,  he  must 
file  a  complete  statement  for  each  brand,  including  name, 
weight,  and  analysis,  with  the  state  chemist,  and  must  send 
to  the  treasurer  of  the  Maryland  Agricultural  College  an  in- 
spection fee  of  $20  for  one  year's  license.  The  state  chemist 
may  also  require  that  a  representative  sample  of  the  stuff 
be  sent  to  him.  The  state  chemist  is  to  have  analyzed,  every 
year,  at  least  one  sample  of  every  such  feed  stuff  offered  for 
sale  in  the  State.  For  this  purpose  he  and  his  deputies  are 
authorized  to  take  a  sample  of  not  over  two  pounds  from 
any  lot  or  package  of  feed  stuff  in  transit  or  in  the  posses- 
sion of  any  manufacturer,  importer,  agent,  or  dealer.  The 
results  of  the  analysis  of  these  samples  are  published  in 
bulletins.  If  the  state  chemist  finds  any  violation  of  the 
laws  on  this  subject,  or  finds  any  feed  stuff  that  does  not 
conform  to  its  certified  statement,  he  gives  thirty  days' 
notice  to  the  manufacturer  or  dealer,  after  which  he  re- 
ports the  violation  to  the  state's  attorney  having  jurisdiction, 
who  prosecutes.  Twenty  thousand  copies  of  each  issue  of 
a  quarterly  bulletin  published  by  the  Fertilizer  and  Feed 
Stuffs  Inspection  Department  are  distributed  among  the 
farmers  of  the  State.38 

Two  new  departments  were  added  to  the  Experiment  Sta- 
tion in  1910.  A  hog  cholera  laboratory  was  established 
with  an  appropriation  of  $5000  for  equipment  and  $5000 
for  two  years'  expenses.39  This  laboratory  instructs  the 
farmers  concerning  hog  cholera,  attempts  to  eradicate  the 
disease,  and  distributes  serum  throughout  the  State.  A 
seed  inspection  department,40  with  an  appropriation  of  $2000 
a  year,  conducts  work  similar  to  that  of  other  inspection 
departments.  Its  analyses  of  farm  seeds  are  a  valuable 

38  Patterson. 
3»  Ibid. 
40  Ibid. 


136  STATE   ADMINISTRATION    IN    MARYLAND  [606 

protection  to  the  farmer.  Furthermore,  the  station  "  aims 
to  cooperate  with  every  county  almshouse  farm  or  farm 
attached  to  a  State  institution,  in  testing  or  in  multiplying 
the  improved  varieties  of  seeds."41 

In  1912  the  governor  recommended  the 

placing  at  the  Agricultural  College  some  person  conversant  with 
newspaper  work  who  would  prepare  in  a  concise  and  condensed 
form  the  results  of  the  experimental  work  going  on  under  the  agri- 
cultural departments  of  the  national  government  as  well  as  of  the 
different  states  of  the  Union,  and  send  the  same  to  the  city  and 
county  newspapers,  who  would  be  glad  to  publish  it  free  of  cost, 
and  thereby  supply  to  all  the  farmers  of  the  State  promptly  and 
freshly  the  information  that  was  secured  from  the  thought  and 
experiments  made  throughout  the  country. 

Recently  it  has  also  been  suggested  that  a  soil  survey  be 
made  of  all  the  counties,  so  that  the  farmers  in  the  State 
might  know  exactly  what  their  soils  are  best  suited  to,  and, 
if  they  are  deficient,  what  is  needed  to  enrich  them.  Such 
a  survey  should  be  of  great  value  to  the  agriculture  of  the 
State.  With  justification  the  Experiment  Station  petitions 
for  increased  appropriations  with  which  to  carry  on  its  use- 
ful work. 

The  functions  of  agricultural  administration  are  fairly 
well  grouped  in  Maryland.  Some  few  of  them  are  con- 
ducted independently.  It  has  already  been  remarked  that 
those  dealing  with  farm  stock  are  too  widely  scattered  and 
are  duplicated.  There  would  seem  to  be  no  reason  why 
the  work  now  being  done  by  the  State  Live  Stock  and  Sani- 
tary Board  and  by  the  state  veterinary  inspector  should  not 
be  grouped  under  the  State  Board  of  Agriculture,  under 
which  there  is  already  a  Maryland  Agricultural  College  vet- 
erinarian, and  under  which  work,  not  identical,  yet  simi- 
lar, is  being  done. 

Geological  Survey. — By  act  of  iSg6*2  there  was  estab- 
lished a  State  Geological  and  Economic  Survey,43  under  the 
direction  of  a  commission  composed  of  the  governor,  the 
comptroller,  the  president  of  Johns  Hopkins  University, 

41  Patterson. 

42  Laws  1896,  ch.  51. 

43  Code  1912,  art.  xci,  sec.  19  ff. 


607]  GENERAL  ECONOMIC  WELFARE  137 

and  the  president  of  the  Maryland  Agricultural  College, 
who  serve  without  salary  but  are  reimbursed  for  actual  ex- 
penses. An  annual  appropriation  of  $15,000  was  made. 
This  commission  has  charge  of  the  survey,  appoints  a  geolo- 
gist as  superintendent,  and,  on  his  nomination,  employs 
assistants.  A  well-known  geologist  is  now  at  the  head  of 
the  work. 

The  duties  of  the  survey  are  to  make  an  examination  of 
the  geological  formations  of  the  State,  with  especial  ref- 
erence to  their  economic  products,  that  is,  building  stones, 
clays,  ores,  and  so  on;  to  examine  and  classify  the  soils 
and  to  study  their  adaptability  to  particular  crops,  a  func- 
tion which  more  properly  belongs  within  the  sphere  of  the 
Agricultural  Experiment  Station,  where  most  of  such  work 
is  done;  to  make  an  examination  of  the  physical  features 
of  the  State  with  reference  to  their  practical  bearing  on 
the  occupations  of  the  people ;  to  prepare  special  geological 
and  economic  maps,  and  to  prepare  reports  to  illustrate 
the  geology  and  the  resources  of  the  State ;  and  to  consider 
such  other  scientific  and  economic  questions  as  in  the  judg- 
ment of  the  commissioners  shall  be  deemed  of  value  to  the 
people.  The  survey  reports  to  the  General  Assembly,  and 
distributes  reports  and  information  through  the  State.  It 
also  distributes  collections  of  materials  among  the  educa- 
tional institutions  of  the  State,  or  puts  them  on  permanent 
exhibition.  A  topographic  survey  of  the  entire  State  was 
finished  several  years  ago.  In  1908  the  governor  pointed  out 
that  the  publications  of  the  Maryland  Geological  Survey 
are  used  in  schools,  colleges,  and  libraries  in  this  and  other 
countries.  He  went  on  to  say  that  the  standard  of  effi- 
ciency of  the  department,  conducted  as  it  is  by  scientists 
eminent  in  their  line,  is  attested  by  the  fact  that  trade  and 
scientific  journals  commend  it  highly,  and  that  "at  every 
international  exposition  in  recent  years,  these  publications 
have  received  the  highest  awards,  the  only  gold  medal 
awarded  in  this  class  having  been  received  recently." 


138  STATE  ADMINISTRATION   IN    MARYLAND  [608 

Forestry.** — In  I9o645  the  Maryland  State  Board  of  For- 
estry was  created,  consisting  of  the  governor,  the  comp- 
troller, the  president  of  Johns  Hopkins  University,  the  pres- 
ident of  the  Maryland  Agricultural  College,  the  state  geol- 
ogist, and  one  interested  citizen  and  one  practical  lumber- 
man engaged  in  lumber  manufacturing  in  the  State,  ap- 
pointed by  the  governor  for  two  years. 

The  members  of  the  board  receive  reimbursement  for  ac- 
tual expenses.  The  state  forester  is  appointed  by  the  board 
at  a  salary  of  not  over  $2000  and  expenses.  He  must 
have  a  practical  knowledge  of  forestry  and  be  a  "trained 
forester."  Under  the  general  supervision  of  the  Board  of 
Forestry,  he  has  the  direction  of  all  forest  interests  and 
all  matters  pertaining  to  forestry  in  the  State.  He  directs 
the  forest  wardens  of  the  State;  takes  action  authorized 
by  law  for  the  prevention  and  extinguishing  of  forest  fires ; 
enforces  all  laws  pertaining  to  forests  and  woodlands,  and 
instigates  prosecutions  for  their  violation;  collects  data  re- 
lating to  forest  conditions  and  forest  destruction;  and  di- 
rects the  protection  and  improvement  of  state  parks  and 
forest  reserves,  and  cooperates  with  the  land  owners  of  the 
State.  He  is  required  to  deliver  every  year  a  course  of 
lectures  on  forestry  and  sylviculture  at  the  Maryland  Agri- 
cultural College,  subject  to  the  approval  of  the  board  of 
trustees  of  that  institution.  As  far  as  his  duties  will  per- 
mit, he  is  also  to  carry  on  educational  courses  of  lectures 
on  forestry  at  farmers'  institutes  and  similar  meetings  in 
the  State. 

The  State  Board  of  Forestry  may  purchase,  in  the  name 
of  the  State,  lands  suitable  for  forest  culture  and  reserves, 
at  not  over  five  dollars  per  acre,  using  for  the  purpose  any 
surplus  funds  not  otherwise  appropriated  which  may  be 
standing  to  the  credit  of  the  forest  reserve  fund.  The 
board  has  power  to  make  all  rules  and  regulations  govern- 
ing these  reserves.  The  governor  is  authorized,  upon  rec- 
ommendation of  the  board,  to  accept  gifts  of  land  to  the 

44  Code  1912,  art  xxxixA,  sec.  i  ff. 

45  Laws  1906,  ch.  294. 


609]  GENERAL   ECONOMIC   WELFARE  139 

State,  to  be  held,  protected,  and  administered  by  the  board 
as  forest  reserves,  and  to  be  used  so  as  to  demonstrate  the 
practical  utility  of  timber  culture  and  as  breeding  places  for 
game.  Such  gifts  must  be  absolute,  except  for  the  reser- 
vation of  mineral  and  mining  rights  in  them  and  the  stipu- 
lation that  they  shall  be  administered  as  state  reserves ;  the 
attorney-general  is  charged  with  seeing  that  all  deeds  to 
such  gift  lands  are  properly  executed  before  the  lands  are 
accepted  by  the  State. 

The  state  forester,  upon  request  or  when  he  deems  it 
necessary  and  when  sanctioned  by  the  board,  cooperates 
with  counties,  towns,  corporations,  and  individuals  in  pre- 
paring plans  for  the  protection,  management,  and  replace- 
ment of  trees,  wood-lots,  and  timber  tracts;  provided  an 
agreement  is  made  by  those  receiving  such  assistance  to  pay 
at  least  the  field  expenses  of  the  men  employed  in  prepar- 
ing the  plans.  The  state  forester  may  apply  to  the  gover- 
nor to  commission  forest  wardens  throughout  the  State  to 
enforce  the  forestry  laws  and  assist  in  the  work  of  the  de- 
partment; these  wardens  are  appointed  for  two  years  and 
receive  compensation  for  actual  services  and,  at  the  discre- 
tion of  the  board,  $20  per  annum.  The  maximum  number 
of  wardens  in  each  county  is  prescribed  as  one  to  every 
15,000  acres  or  fraction  thereof  over  one  half.  They  have 
power  of  constables  so  far  as  the  forestry,  game,  and  fish 
laws  are  concerned ;  they  are  charged  with  the  enforcement 
of  the  forestry  laws,  the  reporting  of  violations  to  the  state 
forester,  and  assistance  in  the  apprehension  and  conviction 
of  violators.  They  have  right  of  way  on  all  lands  in  case 
of  fire,  and  at  such  times  may  employ  men  to  assist,  being 
permitted  to  call  on  all  able-bodied  men  from  eighteen  to 
fifty  years  of  age  and  to  require  the  use  of  horses  and  other 
property  in  extinguishing  the  fire.  They  make  annual  re- 
ports to  the  state  forester  on  the  condition  of  the  forests 
in  their  respective  territories;  they  must  make  immediate 
report  of  expenses  incurred  in  fighting  fires.  One  half  of 
the  expense  of  fighting  forest  fires  is  borne  by  the  county, 


I4O  STATE   ADMINISTRATION    IN    MARYLAND  [6lO 

one  half  by  the  State;  but  owners  may  not  be  paid  for 
fighting  fire  on  their  own  lands.  The  county  commissioners 
are  authorized  to  levy  taxes  and  appropriate  money  for 
the  protection,  management,  and  purchasing  of  forests. 

The  Forest  Reserve  Fund  is  set  aside  as  a  special  fund 
in  the  state  treasury,  and  to  it  goes  all  money  collected  for 
the  violation  of  the  forestry  laws.  It  is  used  for  the  "  pro- 
tection, management,  replacement,  and  extension  of  the 
forests  of  the  State,"  under  the  direction  of  the  State  Board 
of  Forestry. 

The  benefit  of  scientific  forestry  and  a  good  forestry 
service  in  a  State  scarcely  needs  to  be  emphasized.  Not  only 
are  fires  prevented  and  tree-culture  is  improved  and  ad- 
vanced, but  deforestation  may  be  prevented.  The  dis- 
astrous results  of  clearing  mountain  and  hillside  without 
replanting,  thereby  permitting  soil-washing  and  consequent 
soil  sterility,  are  well  known.  Recently  the  state  forester 
of  Maryland46  estimated  that  in  Maryland,  which,  although 
it  is  not  a  "  timber  state,"  has  thirty-five  per  cent  of  timber 
land,  the  annual  loss  from  forest  fires  has  been  reduced 
from  $250,000  to  $50,000  by  means  of  the  system  of  wardens 
and  forest  patrol.  The  state  forester  has  advocated  the 
passage  at  this  session  of  the  legislature  of  a  law  providing 
for  the  planting  of  trees  along  public  roads. 

State  Conservation  Bureau.4* — By  act  of  iQio48  there  was 
established  a  State  Conservation  Bureau,  to  consist  of  three 
unsalaried  commissioners  appointed  by  the  governor.  The 
duties  of  the  bureau  are  to  study  problems  concerning  the 
utilization  and  conservation  of  the  natural  resources  of  the 
State,  to  cooperate  with  the  national  government  in  con- 
serving Maryland  resources,  to  prepare  publications  from 
time  to  time,  and  to  report  to  the  General  Assembly  at 
each  session. 

The  conservation  of  natural  resources  should  be  more 
closely  allied  with  other  administrative  departments  of  the 

46  In  a  lecture  at  the  Johns  Hopkins  University. 
Cnrle  TOT2.  art.  VIVA. 


47  Code  1912,  art. 

48  Laws  1910,  ch.  238. 


6ll]  GENERAL   ECONOMIC   WELFARE 

State  which  have  to  do  with  these  resources,  as,  for  in- 
stance, the  State  Board  of  Forestry  and  the  Geological  Sur- 
vey. Similarly  there  should  be  some  organic  connection 
between  these  departments  and  the  State  Board  of  Agricul- 
ture. 

BUREAU  OF  IMMIGRATION 

This  bureau49  exists  for  the  purpose  of  encouraging  im- 
migration to  Maryland.  It  is  conducted  by  a  board  of 
three  commissioners  of  immigration,  who  are  appointed  by 
the  governor,  with  the  consent  of  the  Senate,  for  terms  of 
two  years.  In  the  appointment  one  member  is  designated  as 
president  of  the  board,  and  one  as  state  superintendent  of 
immigration.  The  superintendent  receives  $2000  a  year  and 
expenses ;  the  other  members  receive  $500  a  year  and  ex- 
penses. An  immigration  office  is  located  in  Baltimore  which 
must  be  kept  open  from  nine  to  five  daily,  where  are  kept 
for  ready  reference  maps,  pamphlets,  and  statistics  descrip- 
tive of  the  geographical  position  of  each  county  of  the 
State,  its  agricultural  and  other  resources  and  capabilities, 
shipping,  marketing,  and  other  facilities,  the  quantities  and 
character  of  lands  for  sale  and  their  prices,  the  social,  edu- 
cational, and  other  conditions  of  each  county,  and  all  ad- 
vantages and  inducements  to  immigrants.  All  information, 
by  letter  or  otherwise,  is  furnished  gratuitously  to  all  who 
apply. 

The  commissioners  appoint  at  a  salary  of  $1200  a  secre- 
tary who  is  to  be  conversant,  if  practicable,  with  the  Eng- 
lish, German,  Dutch,  and  French  languages.  He  keeps  the 
books  and  records  of  the  office,  where  he  must  be  in  daily 
attendance ;  conducts  its  correspondence  and  other  business ; 
and  in  the  absence  of  the  superintendent,  furnishes  infor- 
mation to  applicants. 

For  the  purpose  of  disseminating  information  and  of  dis- 
tributing and  locating  the  immigrants  who  are  brought  into 
the  State  through  the  agency  of  the  bureau,  the  board,  in 

49  Code  1912,  art.  X!VA,  sec.  I  ff. 


142  STATE   ADMINISTRATION    IN    MARYLAND  [6 1  2 

addition  to  collecting  information,  encourages  the  organi- 
zation of  local  boards  of  immigration  throughout  the  State, 
at  local  expense.  The  board  may  call  on  the  county  com- 
missioners to  assist  it  in  collecting  information.  If  it  seems 
desirable,  the  superintendent  may,  personally  or  through  an 
agent,  visit  places  in  the  Union  and  Canada  for  the  purpose 
of  attracting  to  Maryland  desirable  immigration.  He  may 
also  take  other  means  of  advertising.  The  board  is  given 
authority  to  make  contracts  with  railways,  steamship  lines, 
and  other  transportation  companies,  securing  low  rates  of 
transportation  for  immigrants ;  it  may  also  make  arrange- 
ments for  their  reception  and  temporary  accommodation 
upon  arrival  in  Baltimore  and  other  points  in  the  State, 
until  they  can  be  distributed  and  located  in  the  various 
counties.  The  board  meets  monthly  in  Baltimore  City  and 
makes  an  annual  report  of  work  and  expenses  to  the  gov- 
ernor, who  transmits  it  to  the  General  Assembly. 

According  to  reports  of  the  bureau,  in  the  two  years  of 
1906  and  1907  land  was  purchased  in  various  parts  of  the 
State  by  250  farmers,  including  a  number  of  foreigners; 
3500  persons  visited  the  bureau  office  seeking  information 
about  the  State,  its  resources  and  its  desirability  as  a  place 
of  residence;  and  21,817  Europeans  landed  in  the  port  of 
Baltimore.  The  bureau  attempted  to  aid  farmers  in  secur- 
ing suitable  labor,  and  "with  this  end  in  view  many  men, 
women,  and  children  were  induced  to  come  from  Europe 
to  the  farms  in  Maryland  at  no  extra  expense  to  the  State." 
This  work  has  continued ;  within  the  past  few  months  there 
has  been  a  movement  toward  the  farms  of  many  unemployed 
persons  in  the  State. 

From  these  efforts  to  increase  immigration  it  would  seem 
that  Maryland  has  not  yet  reached  the  stage  where  the  prob- 
lem of  over-immigration  and  undesirable  immigration  is  a 
serious  one,  as  it  is  in  some  other  States.  But  it  is  to  be 
noted  that  the  effort  is  to  attract  such  immigrants  as  will 
become  farm  owners  and  farm  laborers,  rather  than  indus- 
trial workers.  It  is  also  to  be  remarked  that  the  secretary 


613]  GENERAL   ECONOMIC   WELFARE  143 

is  "  to  be  conversant,  if  practicable,  with  the  English,  Ger- 
man, Dutch  and  French  languages;"  this  would  seem  to 
indicate  that  in  creating  the  bureau  the  legislators  had  in 
mind  English,  German,  Dutch,  and  French  immigrants,  who 
are  as  a  rule  of  a  better  class  than  those  coming  from  the 
more  southerly  parts  of  Europe. 

In  1912  the  governor  recommended  that  the  Bureau  of 
Immigration  be  consolidated  with  the  Maryland  Agricul- 
tural College  and  administered  by  its  trustees,  "thereby 
saving  administration  expenses."  Presumably  this  consoli- 
dation will  not  take  place. 

INDUSTRIAL  BUREAU 

There  is  a  "  Bureau  of  Statistics  and  Information  as  to 
Branches  of  Industry,"50  the  head  of  which  is  called  "  chief 
of  the  Industrial  Bureau  "  and  is  appointed  by  the  govenor, 
with  the  consent  of  the  Senate,  for  a  term  of  two  years  and 
at  a  salary  of  $2500  per  annum.  The  annual  appropriation 
is  $10,000.  The  bureau  is  directed  to  collect  statistics,  to 
operate  a  free  employment  agency,  to  arbitrate  labor  dis- 
putes, and  to  enforce  child  labor  laws. 

Statistics. — The  bureau  collects  statistics  and  informa- 
tion regarding  labor,  with  especial  reference  to  wages  and 
the  causes  of  strikes  and  disagreements;  agricultural  con- 
ditions and  products,  acreage  under  cultivation,  character 
and  price  of  lands,  live  stock,  and  so  on,  which  may  be  of 
general  interest  and  calculated  to  attract  immigration ;  min- 
eral products,  the  output  of  mines  and  quarries,  and  the 
manufacturing  industries ;  and  railways  and  other  transpor- 
tation companies,  shipping,  and  commerce.  It  is  a  bureau 
of  general  information,  and  all  state  officers  must  send  to 
it  copies  of  their  reports  as  soon  as  they  are  published. 
This  information  it  classifies  and  publishes  annually. 

Employment  Agency. — The  bureau  has  organized  and 
operates  a  free  state  employment  agency.  It  has  been  rec- 

50  Code  1912,  art.  Ixxxix,  sec.  i  ff. 


144  STATE   ADMINISTRATION    IN    MARYLAND  [614 

I 

ommended  that  the  scope  of  this  agency  should  be  widened 
to  cover  the  entire  State  by  the  establishment  of  additional 
branches  for  the  distribution  of  unemployed  persons  over 
the  State. 

Arbitration  of  Labor  Disputes. — This  function  was  in- 
troduced by  act  of  I9O4.51  On  the  receipt  of  information 
from  an  employer  or  from  a  committee  of  employes,  or 
from  any  reliable  source,  that  a  dispute  has  arisen  between 
employers  and  employes  involving  ten  or  more  persons, 
which  may  be  the  result  of  a  strike  or  a  lock-out,  the  chief 
or  a  deputy  of  the  Industrial  Bureau  visits  the  scene  and 
attempts  to  mediate.  If  this  purpose  cannot  be  accom- 
plished, he  endeavors  to  secure  the  consent  of  the  parties 
to  the  formation  of  a  board  of  arbitration,  to  be  composed 
of  one  employer  and  one  employe  of  the  same  or  a  similar 
trade,  not  involved  in  the  dispute,  chosen  by  the  respective 
parties  to  the  controversy,  and  a  third  arbitrator  selected 
by  the  first  two ;  on  their  failure  to  select  this  third,  the 
chief  of  the  Industrial  Bureau,  or  a  deputy,  acts.  If  the 
parties  refuse  to  arbitrate,  the  chief  of  the  bureau  or  his 
deputy  investigates  the  dispute,  for  which  purpose  he  is 
given  power  to  summon  witnesses,  administer  oaths,  and 
compel  the  giving  of  testimony  and  the  production  of  books 
and  papers.  Having  determined  in  his  judgment  which 
party  is  mainly  "  responsible  and  blameworthy  "  for  the  con- 
tinuance of  the  dispute,  he  publishes  in  some  daily  paper  a 
report  assigning  such  responsibility  or  blame  over  his  offi- 
cial signature. 

Supervision  of  Child  Labor. — The  chief  of  the  Industrial 
Bureau  has  the  supervision  of  child  labor.  For  the  pur- 
pose of  enforcing  child  labor  laws  he  appoints  eight  in- 
spectors, at  a  compensation  of  $900  per  year  and  expenses, 
who,  like  the  school  attendance  officers,  visit  business  es- 
tablishments to  see  whether  any  minors  are  employed  con- 
trary to  the  law,  and  if  they  discover  violations  report  them 
to  justices  of  the  peace.  The  bureau  also  issues  special 

51  Laws  1904,  ch.  671. 


615]  GENERAL   ECONOMIC   WELFARE  145 

permits  for  child  employment,  and  for  carrying  on  this 
branch  of  its  work  receives  from  the  State  $12,000  annually. 
The  bureau  chief  is  authorized  to  employ,  in  addition  to 
the  eight  inspectors,  one  or  more  physicians,  at  a  total  com- 
pensation of  not  over  $2500,  which  is  to  be  paid  by  Balti- 
more City. 

The  chief  of  the  bureau  reported  in  1908  that  "the  en- 
forcement of  the  Child  Labor  Law  has  received  special 
attention  since  its  adoption,"  and  that  a  total  of  20,087  Per~ 
mits  to  work  had  been  given  to  children  between  twelve 
and  sixteen  years  of  age.  He  also  stated  that  the  sweat 
shop  law  was  "vigorously  enforced,"  and  that  the  clothing 
industry  in  Baltimore,  which  gives  employment  to  18,000 
people  and  has  an  output  estimated  at  $25,000,000,  was  well 
regulated.  In  1912  he  reported  that  in  1911,  under  the 
child  labor  and  factory  laws,  23,599  places  had  been  vis- 
ited, 649  more  than  in  1910;  and  that  the  law  prohibiting 
the  employment  of  children  under  sixteen  years  of  age  more 
than  ten  hours  a  day  was  being  well  enforced. 

The  provisions  concerning  the  age  limits  for  employment 
are  so  variously  and  confusingly  set  forth  that  it  is  diffi- 
cult to  generalize  concerning  them.  Generally  speaking, 
the  minimum  age  is  twelve  in  some  employments,  fourteen 
in  others,  and  sixteen  in  certain  enumerated  dangerous  em- 
ployments. There  are  also  provisions  requiring  a  certain 
amount  of  schooling.  Every  child  employed  under  sixteen 
years  of  age  must  receive  a  certificate  from  the  Industrial 
Bureau;  this  certificate  vouches  for  age  (on  authentic  evi- 
dence), a  certain  physical  development,  a  certain  amount 
of  schooling,  and  so  on.  It  is  issued  in  Baltimore  by  the 
Industrial  Bureau  and  in  the  counties  by  school  superin- 
tendents acting  for  the  bureau. 


1C 


146  STATE   ADMINISTRATION    IN    MARYLAND  [6 1 6 

STATE  WHARFINGER52 

The  governor,  with  the  consent  of  the  Senate,  appoints 
every  two  years  a  state  wharfinger53  in  Baltimore  City. 
This  official  takes  charge  of  the  wharves  in  Baltimore  be- 
longing to  or  rented  by  the  State,  and  charges  wharfage 
fees.  His  compensation  is  $250  a  year  plus  one  fifth  of  the 
fees. 

WEIGHTS  AND  MEASURES 

A  system  of  standard  weights  and  measures54  is  provided 
in  the  State,  based  on  the  United  States  standards.  The 
administration  of  this  system  in  the  counties  is  placed  in  the 
hands  of  the  county  commissioners,  who  appoint  "keepers 
of  standard  weights  and  measures."  These  keepers  inspect 
all  weights  and  measures  and  brand  them  with  the  letters 
"  Md.  S."  (Maryland  Standard),  and  investigate  the  use  of 
fraud  in  weighing  and  measuring.  There  are  special  stand- 
ards established  by  the  State  for  different  products,  par- 
ticularly for  fruits  and  vegetables. 

A  platform  scale  for  weighing  tomatoes  is  kept  in  Balti- 
more City  by  the  Board  of  Public  Works.  This  was  estab- 
lished by  act  of  ipio,55  and  by  the  same  act  the  office  of 
weigher  was  created.  This  weigher,  who  is  appointed  by 
the  governor,  weighs  all  vegetables  sold  by  weight  that 
are  brought  to  Center  Market  Space  in  Baltimore  City, 
charging  for  this  service  a  small  fee. 

STATE  WEATHER  SERVICE 

The  State  Weather  Service56  is  under  the  control  and 
management  of  the  Johns  Hopkins  University,  the  Mary- 
land Agricultural  College,  and  the  United  States  Weather 

52  Code  1912,  art.  xcviii. 

53  Section  i  of  this  article  reads  "  one  or  more  wharfingers,"  but 
all  other  sections  refer  to  a  "  state  wharfinger." 

54  Code  1912,  art.  xcvii. 

65  Laws  1910,  ch.  738. 

66  Code  1912,  art.  xcviA. 


6 1 7]  GENERAL   ECONOMIC   WELFARE  147 

Service.  Its  officers  are  a  director,  designated  by  the  presi- 
dent of  the  Johns  Hopkins  University ;  a  secretary-treasurer, 
designated  by  the  president  of  the  Maryland  Agricultural 
College ;  and  a  meteorologist,  designated  by  the  chief  of  the 
United  States  Weather  Bureau.  These  officers  constitute  a 
board  of  government  under  the  direction  of  the  institutions 
from  which  they  receive  their  appointments.  They  receive 
no  compensation. 

The  central  station  is  at  the  Johns  Hopkins  University. 
The  board  of  government  was  authorized  by  the  act  creating 
it57  to  establish,  if  practicable,  one  or  more  voluntary 
meteorological  stations  in  each  county,  under  its  supervision, 
to  cooperate  with  the  chief  of  the  United  States  Weather 
Bureau.  The  board  is  authorized  to  print  weekly  and 
monthly  reports  and  distribute  them  in  the  State.  Annual 
reports  are  made  to  the  General  Assembly. 

STATE  MANUAL 

The  secretary  of  state  is  required  to  publish  annually  a 
State  Manual58  of  general  information,  including  lists  of 
officers  and  their  salaries,  amounts  of  the  public  school  tax, 
the  gross  and  net  debt  of  the  State,  appropriations  to  educa- 
tional and  charitable  institutions,  and  similar  information. 
This  work  is  somewhat  similar  to  that  of  the  Bureau  of 
Statistics  and  Information  (Industrial  Bureau),  and  might 
be  consolidated  with  it. 

CONCLUSION 

It  seems  unnecessary,  except  in  a  very  broad  way,  to  set 
forth  here  the  conclusions  and  recommendations  which  have 
been  made  throughout  the  preceding  paragraphs  and  which 
have  been  recapitulated  at  the  close  of  each  chapter.  Most 
of  them  may  be  included  in  the  statement  that  greater  cen- 
tralization and  correlation  of  functions  are  needed. 

57  Laws  1892,  ch.  329. 

58  Code  1912,  art.  Ixxxv. 


148  STATE   ADMINISTRATION    IN    MARYLAND  [6l8 

We  have  seen  that  in  public  education  the  system  of 
primary  and  high  schools  has  been  fairly  well  organized 
under  the  control  of  a  state  board ;  that  in  lower  education 
the  need  is  for  greater  uniformity  and  standardization  in  the 
prescribing  of  courses  of  instruction  and  especially  in  the 
choosing  and  regulating  of  teachers — a  need  of  a  civil  service 
system  which  will  work  justice  both  to  the  teachers  and  to 
the  State;  and  further,  we  have  seen  that  in  collegiate 
education  there  should  be  some  central  supervision  leading 
to  high  and  uniform  standards. 

In  the  field  of  public  health  the  demand  is  for  greater 
central  power  that  will  enable  the  very  efficient  State  Board 
of  Health  to  enforce  local  sanitation  and  better  to  control 
the  local  health  officers. 

In  that  branch  of  the  state  government  which  deals  with 
public  charities  the  deficiencies  are  great.  Maryland  has 
pursued  a  policy  of  haphazard  benevolence,  appropriating 
for  the  benefit  of  private  and  special  interests  as  well  as  for 
public  general  ones.  She  has  a  board  of  charities  which,  in 
spite  of  efficiency  in  its  sphere,  is  limited  in  its  powers.  We 
can  now  see,  however,  indications  of  a  tendency  to  adopt 
the  only  proper  policy — that  of  cutting  off  private  and 
special  interests  from  state  aid,  and  of  granting  assistance 
only  to  state  institutions  and  organizations.  And  for  the 
proper  conducting  of  this  policy  there  should  be  a  board  of 
state  aid  and  charities  which  will  be  not  merely  advisory, 
but  supervisory.  The  treatment  of  the  insane  by  the  State 
embodies  the  best  principles  that  the  State  has  yet  put 
into  practice.  Here  it  has  been  undertaken  to  make  the 
care  of  all  indigent  insane  persons  a  state  matter,  state 
insane  hospitals  in  charge  of  trained  physicians  having  been 
established  and  a  Lunacy  Commission  composed  of  experts 
having  been  created.  The  plan  of  state  care,  so  well  begun, 
should  be  made  complete. 

The  page  which  Maryland  has  written  in  the  story  of  the 
treatment  of  criminals  has  been  black.  Recent  investiga- 
tions, bringing  to  light,  as  they  have,  cruelty,  filth,  and  cor- 


619]  GENERAL  ECONOMIC  WELFARE  149 

ruption  in  its  correctional  organization,  will  undoubtedly 
lead  to  striking  reforms.  And  these  reforms  will  be  based 
on  modern  ideas  of  reformative  rather  than  punitive  justice. 
Proper  sanitation  and  medical  treatment  will  be  established. 
Corruption  among  officers  and  convicts  will  be  eliminated, 
it  is  hoped.  Unnecessarily  cruel  punishments  will  be 
abolished.  First  offenders  will  be  kept  from  hardened 
criminals  and  their  evil  influences.  The  unjust  system  of 
contract  labor  will  be  done  away  with,  and  convicts  will  be 
given  more  healthful  occupation  in  the  open  air,  on  farms, 
or  perhaps  on  the  roads  of  the  State.  The  indeterminate 
sentence  and  a  special  board  of  pardon  and  parole  will 
perhaps  be  established.  It  may  even  be  that  an  honor  system 
will  be  tried,  now  that  other  States,  as  for  instance,  Colo- 
rado, have  demonstrated  its  practicability.  The  entire  sys- 
tem, instead  of  being  divided  among  separate  and  inde- 
pendent boards  and  chiefs  liable  to  corruption,  should  be 
united  under  one  central  and  enlightened  board. 

Again,  in  the  field  of  finance,  or  more  properly  in  one  of 
its  large  divisions,  that  of  taxation,  the  need  is  for  central- 
ization. There  has  been  injustice  and  inequality  in  the  levy- 
ing and  collecting  of  taxes  throughout  the  State.  From 
these  conditions  of  distintegration  has  arisen  the  demand 
for  a  central  board  of  assessment  and  equalization  that 
would  correct  the  evils  and  make  taxation  more  uniform 
and  equable. 

Finally,  throughout  many  of  the  various  minor  branches 
of  administration  there  is  seen  the  need  of  centralization. 
Numerous  offices  now  carrying  on  identical  or  similar  work 
should  be  combined. 

However,  centralization  and  integration  are  not  to  be  con- 
fused. It  is  true  they  are  very  closely  related  and  usually 
go  hand  in  hand ;  yet  they  are  distinct.  We  may  even  find 
a  considerable  amount  of  centralization  in  a  government, 
and  at  the  same  time  an  inconsiderable  amount  of  integra- 
tion. In  fact,  this  is  true  of  Maryland  administration  when 
viewed  as  a  whole.  Many  departments  lack  central  power, 


I5O  STATE   ADMINISTRATION    IN    MARYLAND  [62O 

but  in  their  relation  to  the  governor  are  fairly  well  "cen- 
tralized "  in  the  sense  that  their  chief  officers  are  appointed 
by  the  governor.  Nor  does  the  governor  lack  greatly  in 
power  of  removal.  One  difficulty  is  that  in  a  number  of 
cases  an  officer  is  appointed  by  the  governor  but  is  respon- 
sible to  the  General  Assembly;  in  fact,  in  many  instances 
where  reports  are  made  to  the  governor  they  must  be  trans- 
mitted to  the  General  Assembly,  and  the  governor's  part 
tends  to  become  only  nominal. 

This  need  of  integration  implies  putting  branches  of  a 
department  in  closer  connection  with  each  other  as  well  as 
with  the  department,  and  placing  the  departments  them- 
selves in  closer  relation ;  in  other  words,  it  is  a  need  of  co- 
operation. And  along  with  this  goes  the  need  of  standard- 
ization, as,  for  instance,  in  the  schools. 

This  need  of  integration  of  the  departments  suggests  some 
system  modelled  more  or  less  after  the  plan  of  the  British 
Ministry.  The  advantages  gained  by  such  a  correlation  of 
departments  would  be  numerous.  If  heads  of  departments 
were  permitted  to  take  part  in  legislative  discussion,  the 
present  necessity  of  lobbying  would  be  obviated.  Further- 
more— and  this  is  important — if  some  budget  plan  were 
adopted,  the  present  disconnected,  haphazard  system  of  ap- 
propriation would  be  greatly  improved. 

The  need  of  trained  experts  cannot  be  overemphasized. 
They  are  already  found  in  many  administrative  depart- 
ments, but  their  proportion  should  be  increased.  They  need 
not  necessarily  fill  purely  advisory  positions;  these  may  be 
occupied  by  men  of  general  ability  who  can  dictate  wise 
policies  and  at  the  same  time  keep  in  touch  with  the  public. 
But  the  actual  work  itself  should  be  carried  on  by  experts 
who  would  not  submit  to  the  vicissitudes  of  politics,  men 
who  are  given  good  remuneration  and  long  tenure.  The 
whole  system  should  be  conducted  very  much  as  is  a  great 
railway,  with  a  board  of  directors  of  supervisory  capacity, 
but  with  workers  trained  each  in  his  own  special  branch. 

Recent  writers  have  commented  approvingly  upon  the 


62l]  GENERAL   ECONOMIC   WELFARE  1 51 

increasing  power  of  the  governor  in  certain  of  our  States.59 
President  Lowell  attributes  this  changed  condition  to  the 
growing  distrust  of  the  American  legislature,  and  points  out 
that  it  takes  place  partly  through  statutory  enactment  and 
partly  through  public  sentiment.60  Governor  Hughes  says, 
"  It  is  out  of  the  conflict  of  competing  interests  or  districts 
that  the  executive  emerges  as  a  representative  of  the  people 
as  a  whole."61  And  in  no  other  field  is  the  governor's  in- 
creasing importance  more  striking  than  in  that  of  admin- 
istration. His  powers  in  Maryland  administration  are 
already  very  great,  especially  in  the  matter  of  appointments, 
but  his  actual  supervision  should  be  increased.  We  may 
summarize  Maryland  administration  needs  as  follows : 
gubernatorial  supervision;  intra-departmental  as  well  as 
inter-departmental  centralization;  integration;  and  stand- 
ardization of  services. 

59  See  J.  M.  Mathews,  "  The  New  Role  of  the  Governor,"  in  Amer- 
ican Political  Science  Review,  May,  1912. 

60  Public  Opinion  and  Popular  Government,  Chapter  X. 

61  J.  A.  Fairlie,  "  The  State  Governor,"  in  Michigan  Law  Review, 
March,  April,  1912. 


INDEX 


Academic  Fund,  37. 
Administration  defined,  n. 
Agricultural  courses  in  schools, 

25. 
Agricultural  Experiment  Station, 

31,  34,  131. 
Almshouses,  59. 
Appeal    tax    court     (Baltimore 

City),  90  ff. 
Arbitration    of    labor    disputes, 

144- 

Architect,  state,  100. 
Assistant  county  superintendents 

of  education,  18. 
Auditor,  state,  93  ff. 

Bacteriology,  Bureau  of,  47. 
Baltimore  Medical  College,  29. 
Banking  institutions,  94  ff. 
Blind,  21,  33. 
Blue  Ridge  College,  30. 
Boards  of  health,  local,  48  ff. 

Centralization  of  administration, 
147  ff. 

Cerebro  -  Spinal  -  Meningitis  in 
Horses  Commission,  128. 

Certificates  to  teach,  16,  18,  19. 

Charities,  59  ff . 

Charlotte  Hall  School,  27. 

Chemistry,  Bureau  of,  47- 

Child  labor  regulation,  144  ff. 

Civil  service  for  teachers,  pro- 
posed, 23. 

Clerks  of  courts,  90. 

Colored  Normal  Schools,  27. 

Colored  schools,  22. 

Communicable  Diseases,  Bureau 
of,  46. 

Comptroller  of  the  treasury,  12, 
80  ff. 

Conservation  Bureau,  State,  140. 

Consolidation  of  offices,  101. 

Continuing  appropriations,  101. 

Corporations,  92  ff . 

Corrections,  75  ff. 


Correlation   of    state    functions, 

147  ff- 

County  examiner  for  schools,  18. 

County  health  officers,  44  ff. 

County  superintendent  of  educa- 
tion, 15,  17  ff. 

Crownsville  State  Hospital,  74. 

Deaf  and  dumb,  21,  33. 

Debts.     See     Investments     and 

debts. 
District  school  trustees,  18  ff. 

Eastern    Shore    State    Hospital, 

74- 
Economies,    proposed,    in    state 

administration,  100  ff. 
Education,  14  ff. 

Education,  State  Board  of,  14  ff. 
Electrical     efficiency     standard, 

108. 

Employment  agency,  143. 
Entomologist,  state,  133. 
Experts  in  state  departments, 

150. 

False  billing,  rating,  and  weigh- 
ing, 108. 

Farmers'  institutes,  33. 

Fee  system,  06. 

Feed  stuffs  inspection,  135. 

Fertilizer  inspection,  134. 

Fire  inspection,  no. 

Fishery  Force,  State,  121  ff. 

Fishing  licenses,  121. 

Food.  See  Pure  food  and 
drugs. 

Forest  reserve  fund,  140. 

Forest  wardens,  139. 

Forester,  state,  138. 

Game,  iigff. 

Gas  pressure  standard,  108. 
Geological  Survey,  I36ff. 
Governor,  powers  of,  n  ff.,  IS1- 


153 


154 


INDEX 


[624 


Haitian  oyster  law,  123  ff. 
High  schools,  24  ff. 
Highway  Loan,  Public,  114. 
Hog  cholera  laboratory,  135. 
Home  and  Infirmary  of  Western 

Maryland,  63. 

Homeopathic  Society,  State,  41. 
Horticultural  inspection,  132  ff. 
Hospital  for  Negro  Insane,  74. 
House  of  Correction,  76. 
House  of  Reformation,  75. 
House  of  Refuge,  75. 
House  of  the  Good  Shepherd,  75. 

Immigration,  141  ff. 

Industrial    Home    for    Colored 

Girls,  75. 

Industrial  schools,  25. 
Industrial  statistics,  143. 
Infectious   diseases,   control   of, 

49- 

Insane,  69  ff. 

Insurance  companies,  96. 
Investments  and  debts  of  coun- 

ties, 86. 
Investments  and  debts  of  State, 

87  ff. 

Johns    Hopkins   University,    29, 


Land  office,  112;  commissioners 
of,  90. 

Law  Examiners,  State  Board  of, 
112. 

Library  Commission,  Maryland 
Public,  34. 

Licensing  of  physicians,  41  ;  of 
trades,  in;  of  motor  vehicles, 
118;  of  motor  vehicle  opera- 
tors, 118;  for  fishing,  121. 

Live  Stock  Sanitary  Board,  126. 

Long  and  short  haul,  108. 

Lunacy  Commission,  71,  72  ff. 

Manual  training,  25. 

Maryland   Agricultural   College, 

29,  3i,  131  ff- 
Maryland  Asylum  and  Training 

School  for  the  Feeble  Minded, 

74- 
Maryland  Hospital   for  the  In- 

sane, 74. 
Maryland  Institute  for  the  Deaf 

and  Dumb,  33. 


Maryland   Institute    (School   of 

Art  and  Design),  28. 
Maryland  School  for  Boys,  28. 
Measurers     and     inspectors     of 

oysters,  general,  122. 
Medical  and  Chirurgical  Faculty, 

Maryland  State,  41. 
Mental  Hygiene  Committee,  72. 
Meteorologist,  state,  147. 
Midwifery,  52. 
Milk  supply,  127,  128. 
Miners'  Hospital,  63. 
Motor  vehicles,  118. 

Natural  resources,  ngff. 

Needs  in  charities,  68;  in  cor- 
rections, 77  ff. ;  in  elementary 
education,  22  ff.,  39;  in  finance, 
96  ff. ;  in  health  administra- 
tion, 54  ff. ;  in  secondary  edu- 
cation, 28,  39;  in  taxation  and 
finance,  96,  100,  105. 

Normal  schools,  26. 

Oyster  boats,  121 ;  culture,  123 
ff. ;  war,  125.  See  also  Fish- 
ery Force,  State;  Measurers 
and  inspectors ;  Shellfish  Com- 
mission. 

Pathologist,  state,  132. 

Paupers,  60. 

Penal  System  Commission,  78. 

Penitentiary,  76  ff. 

Penitentiary  Penal  Commission, 

Maryland,  77. 
Pensions  for  teachers,  20. 
Principals  of  normal  schools,  14. 
Private  academies,  28. 
Public     schools,     commissioners 

of,  in  Baltimore  City,  22. 
Public       Service       Commission, 

io6ff. 

Public  service  companies,  106. 
Public    Works,    Board    of,    12, 

83  ff. 
Purchasing     agency,     proposed, 

IOO. 

Pure  food  and  drugs,  53  ff. 

Rate  filing  and  publishing,  108. 
Reciprocity   in   motor   licensing, 

118. 

Reformatories,  75. 
Registers  of  wills,  90. 


625] 


Registrars  of  vital  statistics,  44, 

45  ff. 

Removal  of  appointees,  12. 
Reports,  12. 
Roads,  H3ff. 
Roads  Commission,  State,  113. 

St.  John's  College,  29. 

St.  Mary's  Female  Seminary,  27. 

St.  Mary's  Industrial  School,  28. 

Sanitary  Engineering,  Bureau 
of,  47- 

Schools,  public,  attendance,  20 
ff. ;  consolidation  of,  17;  gifts 
and  donations  to,  16;  sanita- 
tion, 18;  sites  and  buildings, 
16;  tax,  17. 

Shellfish  Commissioners,  Board 
of,  123. 

Sidepath  commissioners,  state, 
117. 

Spring  Grove  State  Hospital,  74. 

Springfield  State  Hospital,  74. 

State  Aid  and  Charities,  Board 
of,  25,  28,  32,  60  ff. 

State  Aid  Highway  Act,  113. 

State  interests  in  private  enter- 
prises, 98. 

State  library,  35. 

State  Loan  of  1912,  115. 

State  loans,  99. 

State  Manual,  147. 

State  Roads  Loan,  114. 

State  university,  proposed,  32. 

Stocking  of  streams  with  fish, 
120. 

Superintendent  of  education, 
state,  15  ff. 


INDEX  155 

Survey  of  oyster  beds  and  crab 
bottoms,  124. 

Tax  collectors,  90 ;  commis- 
sioner, 91 ;  discounts,  102 ; 
equalization,  103;  machinery, 
89;  reassessment,  103. 

Teachers,  19,  23. 

Teachers'  associations,  20. 

Teachers'  institutes,  20. 

Text-books,  17. 

Tobacco  inspection,  129;  ware- 
houses, 129. 

Treasurer,  state,  12,  80,  82  ff. 

Trustees  of  the  Poor,  59. 

Tuberculosis,  51,  64,  66. 

Tuberculosis  commission,  64. 

Tuberculosis  Sanatorium,  Mary- 
land, 65. 

United  States  Bureau  of  Educa- 
tion, 32. 

United  States  Health  Depart- 
ment, survey  of  Maryland,  57. 

University  of  Maryland,  29. 

Vaccination,  42. 
Vagrants,  60. 
Veterinary  inspection,  127. 
Vital  Statistics,  Bureau  of,  45  ff. 
Vital  statistics,  registrars  of,  44, 
43  & 

Washington  College,   19,  29,  30. 
Weather  Service,  State,  146. 
Weights  and  measures,  146. 
Western  Maryland   College,  29, 

31. 

Wharfage,  146. 


Johns  Hopkins  University  Studies 

in  Historical  and  Political  Science 


The  University  Studies  will  continue  to  publish,  as  heretofore, 
the  results  of  recent  investigations  in  History,  Political  Economy, 
and  Political  Science. 

The  titles  given  below  are  now  announced  ;  other  numbers  will 
follow  from  time  to  time. 


The  Organizability  of  Labor.    By  WILLIAM  O.  WEYFORTH,  Jr. 

Party  Organization  and   Machinery   in  Michigan   since  1890.     By 

ARTHUR  C.  MILLSPATJGH. 

The  Virginia  Committee  System  and  the  Revolution.    By  J.  MILLER 
LEAKE. 

The  Japanese  Judiciary.    By  T.  YOKOYAMA. 

The   Arbitral    Determination   of  Railway   Wages.      By   J.-  NOBLE 
STOCKETT,  Jr. 

Unemployment  and  American  Trade  Unions.    By  DAVID  P.  SMELBER, 
Jr. 

Sumptuary  Legislation  in  Niirnberg  at  the  Period  of  the  Reformation. 

By  K.  ROBERTS  GREENFIELD. 

French  Protestantism  on  the  Eve  of  the  Religious  Wars,  1559-1562. 
By  C.  GUYER  KELLY. 

The  National  Debt  of  Japan.    By  S.  KITASAWA. 
The  Standard  of  Living  in  Japan.    By  K.  MORIMOTO. 


The  cost  of  subscription  for  the  regular  annual  series,  comprising 
about  600  pages,  is  $3.00.  Single  numbers,  or  special  monographs, 
at  special  prices.  Complete  contents  of  previous  volumes  given  on 
pages  ix-xm. 

i 


STUDIES  IN  HISTORY,  ECONOMICS 
AND  PUBLIC  LAW 

EDITED  BY 

THE  FACULTY  OF  POLITICAL  SCIENCE  OF 
COLUMBIA  UNIVERSITY 


RECENT  NUMBERS 


VOLUME  LXVI,  1915.    655  pp.    Price,  cloth,  $4.50. 

1.  [158]  The  Recognition  Policy  of  the  United  States. 

By  JULIUS  GOEBEL,  JR.,  Ph.D.     Price,  $2.00. 

2.  [159]  Railway  Problems  in  China.  By  CHIH  Hsu,  Ph.D.     Price,  $1.50. 

3.  [160]  The  Boxer  Rebellion.  By  PAUL  H.  CLEMENTS,  Ph.D.    Price,  $2.00. 

VOLUME  LXVH,  1916.     538  pp.    Price,  cloth,  $4.00. 

1.  [161]  *Russian  Sociology.  By  JULIUS  F.  HECKER,  Ph.D.     Price,  $2.50. 

2.  [162]  State  Regulation  of  Railroads  in  the  South. 

By  MAXWELL  FERGUSON,  A.M.,  LL.B.     Price,  $1.75. 
VOLUME  LXVm,  1916.    518  pp.    Price,  cloth,  $4.50. 

[163]  The  Origins  of  the  Islamic  State.  By  PHILIP  K.  Him,  Ph.D.     Price,  $4.00. 

VOLUME  LXIX,  1916.    489  pp.    Price,  cloth,  $4.00. 

1.  [164]  Railway  Monopoly  and  Rate  Regulation. 

By  ROBERT  J.  MCFALL,  Ph.D.    Price,  $2.00. 

2.  [165]  The  Butter  Industry  in  the  United  States. 

By  EDWARD  WIEST,  Ph.D.     Price,  $2.00. 
VOLUME  LXX,  1916.     540  pp.     Price,  cloth,  $4.50. 
[166]  Mohammedan  Theories  of  Finance.    By  NICOLAS  P.  AGHNIDES,  Ph.D.     Price,  $4.00. 

VOLUME  LXXI,  1916.     476  pp.     Price,  cloth,  $4.00. 
1.  [167]  The  Commerce  of  Louisiana  during  the  French  Regime,  1699-1763. 

By  N.  M.  MILLER  SURREY,  Ph.D.     Price    $3.50. 
VOLUME  LXXH,  1916.     542  pp.     Price,  cloth,  $4.50. 

1.  [168]  American  Men  of  Letters:  Their  Nature  and  Nurture. 

By  EDWIN  LEAVITT  CLARKE,  Ph.D.    Price,  $1.50. 

2.  [169]  The  Tariff  Problem  in  China.  By  CHIN  CHU,  Ph.D.     Price,  $1.50. 

3.  [170]  The  Marketing  of  Perishable  Food  Products.     By  A.  B.  ADAMS,  A.M.     Price,  $1.50. 

VOLUME  LXXIII,  1916.    616  pp.     Price,  cloth,  $4.50. 

1.  [171]  The  Social  and  Economic  Aspects  of  the  Chartist  Movement. 

By  FRANK  F.  ROSENBLATT,  Ph.D.     Price,  $2.00. 

2.  [172]  The  Decline  of  the  Chartist  Movement. 

By  PRESTON  WILLIAM  SLOSSON,  Ph.D.    Price,  $2.00. 

3.  [173]  Chartism  and  the  Churches.  By  H.  U.  FAULKNER,  Ph.D.     Price.  $1.25. 

VOLUME  LXXIV,  1916. 

1.  [174]  The  Rise  of  Ecclesiastical  Control  in  Quebec. 

By  WALTER  A.  RIDDELL,  Ph.D.     Price,  $i.7S- 

2.  [175]  Political  Opinion  in  Massachusetts  during  Civil  War  and  Reconstruction. 

By  EDITH  ELLEN  WARE.    (In  press) 

The  price  for  each  volume  is  for  the  set  of  monographs  in  paper.  Each  volume,  as  well 
as  the  separate  monographs  marked  *,  can  be  supplied  in  cloth-bound  copies  for  fifty  cents 
additional.  All  prices  are  net 

The  set  of  seventy-three  volumes,  comprising  monographs  1-173  is  offered  bound  for 

$246,  except  that  Vol.  II  can  be  supplied  only  in  part  and  hi  paper  covers, 

No.  1  of  that  volume  being  out  of  print.    Volumes,  III,  IV  and  XXV 

can  now  be  supplied  only  in  connection  with  complete  sets. 

For  further  information  apply  to 

Prof.  EDWIN  R.  A.  SELIGMAN,  Columbia  University, 
or  to  MESSRS.  LONGMANS,  GREEN  &  CO.,  New  York. 
London:  P.  S.  KING  &  SON,  Ltd.,  Orchard  House,  Westminster. 

ii 


ECONOMIC  PROBLEMS 

of  unusual  depth  and  gravity  face  the  men 
and  women  of  today.  No  life  is  so  remote 
that  it  may  evade  thoughtful  consideration  of 
them.  Books  that  deal  fairly  and  frankly 
with  these  problems  are  the  safest  guide  to 
wise  solution. 

Readings  in  Social  Problems  $2.80 

Edited  by  ALBERT  B.  WOLFE,  University  of  Texas.     804  pages. 

Every  student  of  human  affairs  will  find  in  this  volume  that  which 
challenges  his  interest,  deepens  his  knowledge,  and  aids  and  compels  a 
study  of  basic  social  problems  of  vital  significance  today.  The  book  offers 
serious  and  stimulating  reading  for  general  readers  or  students  in  survey 
courses  in  economics  and  sociology.  The  discussions,  critical  but  non- 
technical, take  up  problems  of  population,  immigration,  the  woman  move- 
ment in  its  many  aspects,  the  family,  and  the  race  problem,  and  represents 
widely  varying  viewpoints. 

Other  Volumes  in  Selections  and 
Documents  in  Economics 

Selected  Readings  in  Economics  $2.25 

Edited  by  CHARLES  J.  BULLOCK,  Harvard  University 

Selected  Readings  in  Public  Finance  $2.25 

Edited  by  CHARLES  J.  BULLOCK,  Harvard  University 

Selections  from  the  Economic  History  of  the 
United  States,  1765-1860  $2.75 

Edited  by  GUY  STEVENS  CALLENDER,  Sheffield  Scien- 
tific School,  Yale  University 

Selected  Readings  in  Rural  Economics  $2.80 

Edited  by  THOMAS  NIXON  CARVER,  Harvard  University 

Sociology  and  Social  Progress  $2.75 

Edited  by  THOMAS  NIXON  CARVER 

Trade  Unionism  and  Labor  Problems  $2.00 

Edited  by  JOHN  R.  COMMONS,  University  of  Wisconsin 

Railway  Problems  (Revised  Edition)  $2.50 

Edited  by  WILLIAM  Z.  RIPLEY,  Harvard  University 

Trusts,  Pools  and  Corporations  (Revised 
Edition)  $2.75 

Edited  by  WILLIAM  Z.  RIPLEY 

GINN  AND  COMPANY,  Publishers 

Boston  New  York  Chicago  London 

Dallas  Atlanta  Columbus  San  Francisco 


A  Few  Harvard  Books 

Of  Recent  Date 

The  Financial  History  of  Boston  395pag«.  $2.00 

By  CHARLES  PHILLIPS  HUSE,  Ph.D.,  Assistant  Professor  of 
Economics  and  Social  Science  at  Boston  University. 
Back  of  its  financial  growth  one  views  the  economic  and  polit- 
ical development  of  the  city  and  the  action  of  one  force  upon 
another.  Tables  in  the  appendix  permit  a  close  study  of  the 
finances  from  year  to  year.  The  book  should  appeal  to  students 
of  municipal  finance  and  government,  and  to  those  interested 
in  the  history  of  Boston.  Harvard  Economic  Studies,  Volume 
XV. 

Government  and  Citizenship  552Pa8fS.  $2.00 

By  HONORABLE  ELIHU  ROOT. 

A  masterly  exposition  of  the  principles  of  the  Constitution  and 
of  the  relation  of  United  States  citizens  to  them.  A  large  pro- 
portion of  the  addresses  are  devoted  to  legal  procedure  and  are 
of  especial  interest  to  lawyers. 

Addresses  on  International  Subjects  463  pages.  $2.00 

By  HONORABLE  ELIHU  ROOT. 

These  papers  on  foreign  affairs  and  international  relations  have 
already  won  a  considerable  reading.  They  cover  the  period 
during  which  the  author  was  Secretary  of  War,  Secretary  of 
State,  and  United  States  Senator. 

military  Organization  and  Colonial  Policy  Nearly  ready.  $2.00 

By  HONORABLE  ELIHU  ROOT. 

A  treatment  of  topics,  arising  from  the  Spanish  War  of  1898, 
which  are  perhaps  now  more  widely  discussed  than  when  the 
speeches  were  originally  uttered. 

Qnoial  Artan+afintv  A  Study  in  the  Development  of  the  Doctrine    2 CA  „„„,,.      <tj  nn 
OOCiai  AaapiailOn.  of  Adaptation  as  a  Theory  of  Social  Progress  -"°  Pa*«-     *J.UL 

By  Lucius  MOODY  BRISTOL,  Ph.D.,  Assistant  Professor  of 
Sociology  in  West  Virginia  University.  With  an  Introduction 
by  Thomas  Nixon  Carver. 

The  purpose  of  this  book  is  to  show  how  the  doctrine  of  adapta- 
tion is  coming  more  and  more  to  be  considered  the  key  to  social 
philosophy,  and  how  this  doctrine  has  evolved.  Harvard 
Economic  Studies,  Volume  XIV. 

HARVARD  UNIVERSITY  PRESS 

44  RANDALL  HALL  CAMBRIDGE,  MASS. 


Diplomatic  Negotiations  of 

American  Naval  Officers 
1778-1883 

By  CHARLES  OSCAR  PAULLIN 

LECTURER  ON  NAVAL  HISTORY  IN  THE  GEORGE  WASHINGTON  UNIVERSITY 

380  Pages.       Cloth,  $2.00 

This  work  presents  a  brief  but  comprehensive  study  of  the  service  of  the  navy 
in  the  field  of  diplomacy,  from  John  Paul  Jones  to  Rear-Admiral  Schufeldt.  The 
naval  officer  as  a  diplomat  was  distinguished  for  simplicity,  candor,  and  direct- 
ness, and  as  his  negotiations  were  for  the  most  part  with  far  distant  oriental 
peoples,  he  was  often  the  first  to  establish  permanent  relations  with  the  United 
States. 

The  story  of  the  negotiations  with  Barbary,  Tripoli,  Algiers  and  other  Mo- 
hammedan states  upon  the  Mediterranean  is  graphically  told,  and  interesting 
chapters  are  devoted  to  the  successful  efforts  of  American  commanders  to  break 
down  the  diplomatic  barriers  of  China,  Japan  and  Korea. 

The  book  is  at  the  same  time  a  contribution  to  the  history  of  the  navy  and 
to  American  diplomatic  history. 


Disturbing  Elements  in  the  Study  and 
Teaching  of  Political  Economy 

By  JAMES  BONAR 

M.A.  (Oxford),  LL.D  (Glasgow) 
156  Pages.  12mo.  Cloth.  $1.60 

This  volume  consists  of  five  lectures  delivered  at  the  Johns  Hopkins  Uni- 
versity in  the  spring  of  1910  by  Dr.  James  Bonar,  the  distinguished  English  eco- 
nomist now  filling  the  office  of  Deputy  Master  of  the  Royal  Mint,  Ottawa. 

As  the  title  suggests,  the  lectures  are  discourses  not  on  economic  error  in  gen- 
eral, but  on  the  more  subtle  fallacies  which  are  apt  to  invade  the  reasoning  of 
trained  economists  in  spite  of  learning  and  discipline.  Such  errors  creep  in  from 
a  popular  political  philosophy  (Lecture  I),  from  want  of  any  political  philosophy 
(II),  from  mistaken  aversion  to  theory  (III),  from  the  shortcomings  of  common 
or  technical  language  (IV),  and  from  the  wrong  handling  of  distinctions  of  time 
(V). 

The  lectures  are  distinguished  by  the  scholarly  tone  and  philosophical  breadth 
that  characterize  Dr.  Bonar's  writings. 

THE  JOHNS  HOPKINS  PRESS 

BALTIMORE  MARYLAND 


Four  Phases  of  American 
Development 

FE  DERALISM-  DEMOCRACY-  IMPERIALISM-  EXPANSION 

By  JOHN  BASSETT  MOORE,  LL.D. 

218  Pages.  Crown  8vo.    Cloth.  Price,  $1.50 

The  lectures  embraced  in  this  volume  are  designed  to  sketch  in  clear  and 
vivid  outline  the  great  movements  by  which  the  historical  development  of  the 
United  States  is  distinguished  and  to  indicate  the  causes  to  which  they  were 
due.  The  order  in  which  the  several  topics  are  discussed  is  not  intended  to  de- 
note a  strict  chronological  succession;  hence  they  are  described  as  phases  rather 
than  as  stages  of  development.  While  federalism,  democracy  and  imperialism 
give  a  dominant  impress  to  successive  periods,  yet  expansion  baa  characterized 
the  entire  course  of  American  history.  The  misapprehension  so  widely  enter- 
tained, that  imperialism  began  with  the  war  with  Spain  is  corrected.  The  im- 
perialistic tendency,  observable  from  the  beginning,  is  shown  to  have  assumed 
a  specially  pronounced  form  in  the  Civil  War  and  in  the  measures  of  national 
self-preservation  to  which  that  great  conflict  gave  rise. 


The  Diplomacy  of  the  War  of  1812 

By  FRANK  A.  UPDYKE,  Ph.D. 

IRA  ALLEN  EASTMAN  PROFESSOR  OF  POLITICAL  SCIENCE  IN 
DARTMOUTH  COLLEGE 

504  Pages.       Cloth,  $2.50 

This  volume  contains  the  lectures  delivered  at  the  Johns  Hopkins  Univer- 
sity in  1914  on  the  Albert  Shaw  Foundation.  The  author  carefully  analyzes 
the  diplomatic  correspondence  in  regard  to  neutral  rights  and  the  impressment 
of  seamen  which  preceded  the  War  of  1812.  The  protests  against  interference 
with  neutral  trade  made  by  Presidents  Jefferson  and  Madison  have  an  unex- 
pectedly familiar  sound  today.  Then,  as  now  the  United  States  was  the  prin- 
cipal neutral  power  in  a  war  which  involved  all  Europe.  The  causes  of  the 
War  of  1812  are  clearly  set  forth.  The  treaty  of  Ghent,  the  hundredth  anniver- 
sary of  which  has  recently  been  celebrated,  is  the  central  theme  of  the  latter 
half  of  the  volume.  The  negotiations  leading  to  the  signing  of  that  treaty  are 
clearly  described.  The  terms  of  the  treaty  are  examined  as  well  as  the  ques- 
tions in  dispute  which  were  omitted,  and  which  continued  to  disturb  the  rela- 
tions of  the  two  countries  for  many  years.  In  the  concluding  chapter  each  of 
these  disputed  questions  is  traced  to  its  final  solution. 

THE  JOHNS  HOPKINS  PRESS 

BALTIMORE,  MARYLAND 


A  REPRINT  OF 

ECONOMIC  TRACTS 


The  Johns  Hopkins  Press  invites  subscriptions  to  a  reprint  of  four  important 
economic  essays  of  the  seventeenth  century,  to  be  issued  consecutively  under  the 
editorial  direction  of  Professor  Hollander: — 

A  Treatise  of  the  Canker  of  Englands  Common  Wealth.  By  GERRARD  DE 
MALYNES.  London,  1601. 

A  Discourse  of  Trade,  from  England  unto  the  East  Indies:  Answering  to 
diverse  Objections  which  are  usually  made  against  the  same.  By  THOMAS 
MUN.  London,  1621. 

The  Treasure  of  Traffike.  Or  a  Discourse  of  Forraigne  Trade.  By  LEWES 
ROBERTS.  London,  1641. 

Brief  Observations  concerning  Trade,  and  Interest  of  Money.  By  JOSIAH 
CHILD.  London,  1668. 

Of  the  tracts  heretofore  reprinted,  a  limited  number  can  yet  be  obtained  as 
follows.  As  the  editions  approach  exhaustion,  the  prices  indicated  are  likely  to 
be  increased  without  notice: — 

Asgill,  "Several  Assertions  Proved"  (London,  1696),  Price,  50  cents. 
Barbon,  "A  Discourse  of  Trade"  (London,  1690),  Price,  50  cents. 
Berkeley,  "The  Querist":  Parts  I,  II,  III  (Dublin,  1735-37),  Price,  $1.00. 
Fauquier,  "An  Essay  on  Ways  and  Means"  (London,  1756),  Price,  50  cents. 
Fortrey,  "Englands  Interest  Considered"  (Cambridge,  1663),  Price,  50  cents. 
Longe,  "A  Refutation  of  the  Wage-Fund  Theory"  (London,  1866),  Price,  $1.00. 

Malthus,  "An  Inquiry  into  the  Nature  and  Progress  of  Rent"  (London,  1815), 

Price,  $1.00. 

Massie,  "The  Natural  Rate  of  Interest"  (London,  1750),  Price,  50  cents. 
North,  "  Discourses  upon  Trade"  (London,  1691),  Price,  50  cents. 
Ricardo,  "Three  Letters  on  'The  Price  of  Gold'  "  (London,  1809),  Price,  $I.oo 
Vanderlint,  "  Money  Answers  All  Things"  (London,  1734),  Price,  $1.00. 

West,  "Essay  on  the  Application  of  Capital  to  Land"  (London,  1815),  Price, 
$1.00. 


THE  JOHNS  HOPKINS  PRESS 

BALTIMORE,  MD. 


Early  Diplomatic  Relations 

BETWEEN 

the  United  States  and  Mexico 

By  WILLIAM  R.  MANNING,  PH.D. 

Adjunct  Professor  of  Latin-American  History  in  the  University 

of  Texas 

418  pages.     Cloth,  $2.25 

This  volume  is  based  on  a  series  of  lectures  delivered  at  the 
Johns  Hopkins  University  in  1913  on  the  Albert  Shaw  Founda- 
tion. It  deals  with  a  period  in  the  diplomatic  relations  between 
the  United  States  and  Mexico,  which  has  hitherto  been  largely 
ignored  by  historians,  whose  attention  has  for  the  most  part 
been  centered  on  the  Texas  revolution,  the  admission  of  Texas 
into  the  Union,  and  the  war  between  the  United  States  and 
Mexico. 

The  writer  shows  in  an  interesting  way  how  the  British  took 
advantage  of  our  delay  in  establishing  a  permanent  representa- 
tive at  the  Mexican  capital  to  promote  British  influence  over  the 
Mexican  government,  and  how  Poinsett's  efforts  to  recover  pres- 
tige for  his  government  involved  him  in  difficulties  and  in 
charges  of  intermeddling  in  the  internal  affairs  of  the  country. 
The  suspicions  thus  aroused,  together  with  Poinsett's  connec- 
tion with  the  York  Masons,  thwarted  his  efforts  to  bring  to  a 
successful  conclusion  the  treaty  negotiations  with  which  he  was 
charged.  Professor  Manning  shows  that  in  the  misunderstand- 
ings and  differences  that  arose  during  the  years  1825—1829  are 
to  be  found  the  origin  and  explanation  of  the  irreconcilable 
differences  which  developed  during  the  next  two  decades  and 
which  finally  resulted  in  war  between  the  United  States  and 
Mexico. 

THE  JOHNS  HOPKINS  PRESS 

BALTIMORE,  MARYLAND 


JOHNS  HOPKINS  UNIVERSITY  STUDIES 

IN 

HISTORICAL  AND  POLITICAL  SCIENCE 

Edited  by  HERBERT  B.  ADAMS,  1882-1901 

•  Not  sold  separately. 
(Volume  sold  only  with  complete  sets.) 

FIRST  SERIES.— 1883.— $4.00. 

I.  An  Introduction  to  American  Institutional  History.    By  E.  A.  FREEMAN.    25  cents. 

II.  The  Germanic  Origin  of  New  England  Towns.     By  H.  B.  ADAMS.     50  cents. 

III.  Local  Government  in  Illinois.     By  ALBEBT   SHAW. — Local  Government  in  Pennsyl- 
vania.    By  E.  R.  L.  GOULD.     30  cents. 

IV.  Saxon  Tithingmen  in  America.    By  H.  B.  ADAMS.     50  cents. 

V.  Local  Government  in  Michigan  and  the  Northwest.    By  E.  W.  BEMIS.     25  cents. 

VI.  Parish  Institutions  of  Maryland.    By  EDWARD  INGLE.     40  cents. 
•VII.  Old  Maryland  Manors.     By  JOHN  HEMSLEY  JOHNSON. 

VIII.  Norman  Constables  in  America.    By  H.  B.  ADAMS.     50  cents. 

IX-X.  Village  Communities  of  Cape  Ann  and  Salem.    By  H.  B.  ADAMS.    50  cents. 

XI.  The  Genesis  of  a  New  England  State.    By  A.  JOHNSTON.    30  cents. 
•XII.  Local  Government  and  Schools  in  South  Carolina.     By  B.  J.  RAMAGB. 

SECOND  SERIES.— 1884. 

(Volume  sold  only  with  complete  sets.) 
•I-II.  Methods  of  Historical  Study.    By  H.  B.  ADAMS. 

III.  The  Past  and  Present  of  Political  Economy.    By  R.  T.  ELY.     35  cents. 

IV.  Samuel  Adams,  the  Man  of  the  Town  Meeting.    By  JAMES  K.  HOSMEB.     35  cents. 
V-VI.  Taxation  in  the  TTnited  States.    By  HENBY  CABTBB  ADAMS.    50  cents. 

VII.  Institutional  Beginnings  in  a  Western  State.     By  JESSE  MACY.     25  cents. 
VIII-IX.  Indian  Money  in  New  England,  etc.     By  WILLIAM  B.  WEEDEN.     50  cents. 
•X.  Town  and  County  Government  in  the  Colonies.    By  E.  CHANNING. 

•XI.  Rudimentary  Society  among  Boys.    By  J.  HEMSLEY  JOHNSON. 

XII.  Land  Laws  of  Mining  Districts.     By  C.  H.  SHINN.     50  cents. 

THIRD  SERIES.— 1885.— $4.00. 

I.  Maryland's  Influence  npon  Land  Cessions  to  the  U.  S.    By  H.  B.  ADAMS.    75  cents. 
II-III.  Virginia  Local  Institutions.    By  E.  INGLE.     75  cents. 

IV.  Recent  American  Socialism.     By  RICHABD  T.  ELY.     50  cents. 
V-VI-VII.  Maryland  Local  Institutions.     By  LEWIS  W.  WH.HBLM.     $1.00. 

VIII.  Influence  of  the  Proprietors  in  Founding  New  Jersey.    By  A.  SCOTT.     25  cents. 
IX-X.  American  Constitutions.     By  HOBACE  DAVIS.     50  cents. 

XI-XII.  The  City  of  Washington.    By  J.  A.  POBTEB.    50  cents. 

FOURTH    SERIES.— 1886.  ~$4.00. 

•I.  Dutch  Village  Communities  on  the  Hudson  River.     By  I.  ELTING. 
II-III.  Town  Government  in  Rhode  Island.    By  W.  E.  FOSTEB. — The  Narragansett  Plant- 
ers.    By  EDWABD  CHANNING.     50  cents. 
TV.  Pennsylvania  Boroughs.     By  WILLIAM  P.  HOLCOMB.     50  cents. 

V.  Introduction  to  Constitutional  History  of  the  States.     By  J.  F.  JAMESON.     50  cents. 

VI.  The  Puritan  Colony  at  Annapolis,  Maryland.     By  D.  R.  RANDALL.     50  cents. 
VTI-VIII-IX.  The  Land  Question  in  the  United  States.     By  S.  SATO.     $1.00. 

X.  Town  and  City  Government  of  New  Haven.     By  C.  H.  LEVERMOBH.     50  cents. 
XI-XII.  Land  System  of  the  New  England  Colonies.     By  M.  EGLESTON.     50  cents. 

FIFTH  SERIES.— 1887.— f  3.50. 
I-II.  City  Government  of  Philadelphia.     By  E.  P.  ALLINSON  and  B.  PBNBOSB.     50  cents. 

III.  City  Government  of  Boston.    By  JAMES  M.  BDGBEE.    25  cents. 

IV.  City  Government  of  St.  Louis.     By  MABSHALL  S.  SNOW.     25  cents. 
V-VI.  Local  Government  in  Canada.    By  JOHN  GEORGE  BOUBINOT.    50  cents. 

VII.  Effect  of  the  War  of  1812  upon  the  American  Union.    By  N.  M.  BUTLEK.     25  cents. 

VIII.  Notes  on  the  Literature  of  Charities.    By  HERBERT  B.  ADAMS.     25  cents. 

IX.  Predictions  of  Hamilton  and  De  Tocqueville.     By  JAMES  BRYCB.     25  cents. 

X.  The  Study  of  History  in  England  and  Scotland.     By  P.  FBBDBBICQ.    25  cents. 

XI.  Seminary  Libraries  and  University  Extension.     By  H.  B.  ADAMS.     25  cents. 

XII.  European  Schools  of  History  and  Politics.    By  A.  D.  WHITE.     25  cents. 

SIXTH  SERIES.— 1888.— $3.50. 

The  History  of  Co-operation  In  the  United  States. 

SEVENTH  SERIES.— 1889. 

(Volume  sold  only  with  complete  set.) 
I.  Arnold  Toynbee.     By  F.  C.  MONTAGUE.     50  cents. 

II-III.  Municipal  Government  in  San  Francisco.     By  BERNABD  MOSES.     50  cents. 
IV.  Municipal  History  of  New  Orleans.     By  WM.  W.  HOWE.     25  cents. 
•V-VI.  Enerlish  Culture  in  Virginia.     By  WILLIAM  P.  TBENT. 

VII-VTII-IX.  The  River  Towns  of  Connecticut.    By  CHABLES  M.  ANDBBWS.     $1.00. 
•X-XI-XII.  Federal    Government    in    Canada.      By    JOHN    G.    BOUBINOT. 


EIGHTH   SERIES.— 1890. 
(Volume  sold  only  with  complete  set.) 
I-II.  The  Beginnings  of  American  Nationality.     By  A.  W.  SMALL.     $1.00. 

III.  Local  Government  in  Wisconsin.      By  D.  B.  SPENCER.     25  cents. 
•IV.  Spanish  Colonization  in  the  Southwest.     By  F.  W.  BLACKMAB. 

V-VI.  The  Study  of  History  in  Germany  and  France.    By  P.  FEEDEEICQ.     $1.00. 
VII-IX.  Progress  of  the  Colored  People  of  Maryland.     By  J.  R.  BBACKETT.    $1.00. 
•X.  The    Study    of    History    in    Belgium    and   Holland.      By    P.    FREDEHICQ. 
XI-XII.  Seminary  Notes  on  Historical  Literature.    By  H.  B.  ADAMS  and  others.    60  cent*. 

NINTH  SERIES.— 1891. 

(Volume  sold  only  with  complete  set.) 

•I-II.  Government  of  the  United  States.    By  W.  W.  WILLOUGHBY  and  W.  F.  WILLOUGHBY. 
III-IV.  University   Education   In   Maryland.     By   B.    C.    STEINEB.      The   Johns   Hoptdni 

University   (1876-1891).     By  D.  C.  OILMAN.     50  cents. 
•V-VI.  Municipal  Unity  in  the  Lombard  Communes.     By  W.  K.  WILLIAMS. 
VII-VIII.  Public  Lands  of  the  Roman  Republic.    By  A.  STEPHENSON.     75  cents. 

IX.  Constitutional  Development  of  Japan.    By  T.  IYENAGA.    50  cents. 
•X.  A  History  of  Liberia.     By  J.  H.  T.  McPHEESON. 

XI-XII,  The  Indian  Trade  in  Wisconsin.    By  F.  J.  TUBNEB.    50  cents. 

TENTH  SERIES.— 1892.— $3.50. 

I.  The  Bishop  Hill  Colony.    By  MICHAEL  A.  MIKKELSEN.     50  cents. 
II-III.     Church  and  State  in  New  England.     By  PAUL  E.  LADER.     50  cents. 

IV.  Church  and  State  in  Maryland.    By  GEORGE  PETRIE.     50  cents. 

V-VI.  Religious  Development  of  North  Carolina.     By  S.  B.  WEEKS.     50  cents. 

VII.  Maryland's  Attitude  in  the  Struggle  for  Canada.    By  J.  W.  BLACK.     50  cents. 
VIII-IX.  The  Quakers  in  Pennsylvania.     By  A.  C.  APPLEGAETH.     75  cents. 

X-XI.  Columbus  and  his  Discovery  of  America.    By  H.  B.  ADAMS  and  H.  WOOD.    50  cents. 
XII.  Causes  of  the  American  Revolution.    By  J.  A.  WOODBDBN.    50  cents. 

ELEVENTH  SERIES.— 1893.— $3.50. 

I.  The  Social  Condition  of  Labor.    By  E.  R.  L.  GOULD.     50  cents. 

II.  The  World's  Representative  Assemblies  of  To-Day.    By  E.  K.  ALDEN.     50  cents. 
III-IV.  The  Negro  in  the  District  of  Columbia.    By  EDWARD  INGLE.    $1.00. 

V-VI.  Church  and  State  in  North  Carolina.    By  STEPHEN  B.  WEEKS.     50  cents. 
VII-VIII.  The  Condition  of  the  Western  Farmer,  etc.    By  A.  F.  BENTLET.     $1.00. 
IX-X.  History  of  Slavery  in  Connecticut.    By  BERNARD  C.  STEINER.    75  cents. 
XI-XII,  Local  Government  in  the  South.    By  E.  W.  BEMIS  and  others.    $1.00. 

TWELFTH  SERIES.— 1894.— $3.50. 
I-II.  The   Cincinnati    Southern   Railway.     By    J.    H.    HOLI.ANDER.     $1.00. 

III.  Constitutional  Beginnings  of  North  Carolina.     By  J.  S.  BASSHTT.     50  cents. 

IV.  Struggle  of  Dissenters  for  Toleration  in  Virginia.     By  H.  R.  MC!LWAINE.     50  cents. 
V-VI-VII.  The  Carolina  Pirates  and  Colonial  Commerce.     By  S.  C.  HUGH  SON.     $1.00. 
VIII-IX.  Representation  and  Suffrage  in  Massachusetts.     By  G.  H.  HAYNES.     50  cents. 

X.  English  Institutions  and  the  American  Indian.    By  J.  A.  JAMES.     25  cents. 
XI-XII.  International  Beginnings  of  the  Congo  Free  State.    By  J.  S.  BEEVES.     50  cents. 

"  THIRTEENTH  SERIES.— 1895.— $3.50. 

I-H.  Government  of  the  Colony  of  South  Carolina.    By  E.  L.  WHITNEY.     75  cents. 
III-IV.  Early  Relations  of  Maryland   and  Virginia.     By   J.   H.   LATANE.     50   cents. 

V.  The  Rise  of  the  Bicameral  System  in  America.    By  T.  F.  MORAN.    50  cents. 
VI-VII.  White  Servitude  in  the  Colony  of  Virginia.    By  J.  C.  BALLAGH.     50  cents. 

VIII.  The  Genesis  of  California's  First  Constitution.    By  R.  D.  HUNT.     50  cents. 

IX.  Benjamin  Franklin  as  an  Economist.     By  W.  A.  WETZEI.     50  cents. 

X.  The  Provisional  Government  of  Maryland.     By  J.  A.  SILVER.     59  cents. 

XI-XII.  Government  and  Religion  of  the  Virginia  Indians.    By  S.  R.  HENDKEN.    50  cent* 

FOURTEENTH  SERIES.— 1896.— $3.50. 

I.  Constitutional  History  of  Hawaii.    By  HENRY  E.  CHAMBERS.     25  cents. 

II.  City  Government  of  Baltimore.     By  THADDEUS  P.  THOMAS.     25  cents. 

III.  Colonial  Origins  of  New  England  Senates.     By  F.  L.  RILEY.     50  cents. 
IV-V.  Servitude  in  the  Colony  of  North  Carolina.     By  J.  S.  BASSETT.     50  cents. 
VI-VII.  Representation  in  Virginia.     By  J.  A.  C.  CHANDLER.     50  cents. 

VIII.  History  of  Taxation  in  Connecticut  (1836-1776).       By  F.  R.  JONES.     50  cents. 
IX-X.  A  Study  of  Slavery  in  New  Jersey.    By  HENBY  S.  COOLEY.     50  cents. 
XI-XII.  Causes  of  the  Maryland  Revolution  of  1689.    By  F.  E.  SPARKS.    50  cents. 

FIFTEENTH  SERIES.— 1897.— $3.50. 

I-II.  The  Tobacco  Industry  in  Virginia  since  1860.    By  B.  W.  ABNOLD.    50  cents. 
III-V.  Street  Railway  System  of  Philadelphia.     By  F.  W.  SPEIRS.     75  cents. 

VI.  Daniel  Raymond.     By  C.  P.  NEILL.     50  cents. 

VII-VIII.  Economic  History  of  B.  &  0.  R.  R.     By  M.  REIZENSTEIN.     50  cents. 

IX.  The  South  American  Trade  of  Baltimore.    By  F.  R.  RUTTEB.    50  cents. 

X-XI.  State  Tax  Commissions  in  the  United  States.     By  J.  W.  CHAPMAN.     50  cents. 
XII.  Tendencies  IB  American  Economio  Thought.    By  S.  SHERWOOD.     25  cents. 

SIXTEENTH  SERIES.— 1898.— $3.50. 
I-IV.  The  Neutrality  of  the  American  Lakes,  etc.    By  J.  M.  CALLAHAN.    $1.25.    Cloth,  $1.53. 

V.  West  Florida.     By  H.  E.  CHAMBERS.     25  cents. 

VI.  Anti-Slavery  Leaders  of  North  Carolina.    By  J.  S.  BASSETT.     50  cents. 
VII-IX.  Life  and  Administration  of  Sir  Robert  Eden.    By  B.  C.  STEINER.     $1.00. 
X-XI.  The  Transition  of  North  Carolina  from  a  Colony.     By  E.  W.   SIKHS.     50  cents. 
XII.  Jared  Sparks  and  Alexis  De  Tocqueville,    By  H.  B.  ADAMS.    25  cents. 


SEVENTEENTH  SERIES.— 1899.— $3.50. 

I-II-III.  History  of  State  Banking  In   Maryland.     By   A.   C.    BRYAN.     $1.00. 
IV-V.  The  Know-Nothing  Party  In  Maryland.*  By  L.  P.  SCHMECKBBIEB.    75  cent*.    *• 

VI.  The  Labadlst  Colony  In  Maryland.    By  B.  B.  JAMES.     50  cents. 
YXX-VIII.  History  of  Slavery  in  North  Carolina.    By  J.  S.  BASSETT.    75  cents. 
IX-X-XI.  Development  of  the  Chesapeake  &  Ohio  Canal.    By  Q.  W.  WARD.     75  cents. 
XII.  Public  Educational  Work  in  Baltimore.    By  HERBERT  B.  ADAMS.    25  cents. 

EIGHTEENTH  SERIES.— 1900.— $3.50. 

I-IV.  Studies  in  State  Taxation.    Edited  by  J.  EL  HOLLANDER.    Paper,  $1.00 ;  cloth,  $1.25, 
V-VI.  The  Colonial  Executive  Prior  to  the  Restoration.     By  P.  L,  KAYB.    50  cents. 

VII.  Constitution  and  Admission  of  Iowa  into  the  Union.     By  J.  A.  JAMBS.    80  cents. 
VIII-IX,  The  Church  and  Popular  Education.     By  H.  B.  ADAMS.     50  cents. 
X-XII.  Religious  Freedom  in  Virginia:  The  Baptists,    By  W.  T.  THOU.    75  cents. 

NINETEENTH  SERIES.— 1901.— $3.50. 

I-III.  America  in  the  Pacific  and  the  Far  East.    By  J.  M.  CALLAIIAN.    75  cents. 

IV-V.  State  Activities  in  Relation  to  Labor.    By  W.  F.  WILLOUGHBY.    50  cents. 

VI-VII.  History  of  Suffrage  in  Virginia.    By  J.  A.  C.  CHANDLEB,     50  cents. 

VIII-IX.  The  Maryland  Constitution  of  1864.    By  W.  S.  MYBES.    50  cents. 

X.  Life  of  Commissary  James  Blair.     By  D.  E.  MOTLEY.    25  cents. 

XI-XII.  Gov.  Hicks  of  Maryland  and  the  Civil  War.    By  G.  L.  RADCLIFFB.     60  cents. 

TWENTIETH    SERIES.— 1902.— $3.50. 

I.  Western  Maryland  In  the  Revolution.     By  B.  C.  STEINEB.     30  cents. 

II-III.  State  Banks  since  the  National  Bank  Act.    By  G.  E.  BAKNETT.     50  cents. 

IV.  Early  History  of  Internal  Improvements  in  Alabama.    By  W.  E.  MABTIN.     80  cents. 
•V-VI.  Trust  Companies  in  the  United  States.     By  GEORGE  CATOB. 

VII-VIIL  The  Maryland  Constitution  of  1851.    By  J.  W.  HABBY.     50  cents. 

IX-X.  Political  Activities  of  Philip  Freneau.     By  S.  E.  FOBMAN.     50  cents. 

XI.-XIZ.  Continental  Opinion  on  a  Middle  European  Tariff  Union.    By  G.  M.  FISK.    30  cts. 

TWENTY-FIRST  SERIES.— 1903.— -$3.50. 

*I-II.  The  Wabash  Trade  Route.     By  E.  J.  BBNTON. 

III-IV.  Internal  Improvements  in  North  Carolina.     By  C.  C.  WEAVES.     50  cents. 

V.  History  of  Japanese  Paper  Currency.     By  M.  TAKAKI.     30  cents. 

VI-VII.  Economics    and    Politics    in   Maryland,    1720-1750,    and   the   Public    Services    of 

Daniel  Dulany  the  Elder.     By  ST.  G.  L.  SIOUSSAT.     50  cents. 
*VIII-IX-X.  Beginnings  of  Maryland,   1631-1639.     By  B.   C.   STEINEB, 
XI-XII.  The  English  Statutes  in  Maryland.    By  ST.  G.  L.  SIOUSSAT.    50  cents. 

TWENTY-SECOND  SERIES.— 1904.— $3.50. 

X-IL  A  Trial  Bibliography  of  American  Trade-Union  Publications.    50  cents. 
III-IV.  White  Servitude  in  Maryland,  1634-1820.    By  E.  I.  McCoBMAC.    50  cents. 
V.  Switzerland  at  the  Beginning  of  the  Sixteenth  Century.    By  J.  M.  VINCENT.    30  cents. 
VI-VII-VIII.  The  History  of  Reconstruction  in  Virginia.    By  H.  J.  ECKENRODE.    50  cents. 
IX-X.  The  Foreign  Commerce  of  Japan  since  the  Restoration.    By  Y.  HATTOBI.    50  cents. 
XI-XII.  Descriptions  of  Maryland.     By  B.  C.  STEIMSK.     50  cents. 

TWENTY-THIRD  SERIES.— 1905.— $3.50. 

I-XI.  Reconstruction  in  South  Carolina.    By  J.  P.  HOLI.IS.     50  cents. 

III-IV.  State  Government  in  Maryland,  1777-1781.     By  B.  W.  BOND,  JR.     50  cents. 

V-VI.  Colonial  Administration  under  Lord  Clarendon,  1660-1667.    By  P.  U  KAYB.    50  cts. 

VII-VIII.  Justice  in  Colonial  Virginia.    By  O.  P.  CHITWOOD.     50  cents. 

IX-X.  The  Napoleonic  Exiles  in  America,  1816-1819.    By  J.  S.  REEVES.     50  cents. 

XI-XII.  Municipal  Problems  in  Mediaeval  Switzerland.    By  3.  M.  VINCENT.  50  cents. 

TWENTY-FOURTH  SERIES.— 1906.— $3.50. 

I-II.  Spanish-American  Diplomatic  Relations  before  1898.  By  H.  E.  FLAGS.  50  cents. 
III-IV.  The  Finances  of  American  Trade  Unions.  By  A.  M.  SAKOLSKI.  75  cents. 
V-VI.  Diplomatic  Negotiations  of  the  United  States  with  Russia.  By  J.  C.  HILDT.  50  cts. 
VII-VIII.  State  Rights  and  Parties  in  North  Carolina,  1776-1831.  By  H.  M.  WAGSTAFF.  50c. 
IX-X.  National  Labor  Federations  in  the  United  States.  By  WILLIAM  KIBK.  75  cents. 
XI-XII.  Maryland  During  the  English  Civil  Wars.  Part  X.  By  B.  C.  STEINEB,  50  cents. 

TWENTY-FIFTH  SERIES.— -1907.— $3.50. 

I.  Internal  Taxation  in  the  Philippines.    By  JOHN  S.  HORD.     30  cents. 
II-III.  The  Monroe  Mission  to  France,  1794-1796.    By  B.  W.  BOND,  Jr.     50  cents. 
IV-V.  Maryland  During  the  English  Civil  Wars,  Part  II.    By  BERNARD  C.  STEINEB.     50c. 
VI-VII.  The  State  in  Constitutional  and  International  Law.     By  R.  T.  CRANE.     50  cents. 
VIII-IX-X.  Financial  History  of  Maryland,  1789-1848.     By  HUGH  S.  HANNA.     75  cents. 
XI-XII.  Apprenticeship  in  American  Trade  Unions.    By  J.  M.  MOTLBY.    50  cents. 

TWENTY-SIXTH  SERIES.— 1908.— $3.50. 

I-III.  British  Committees,   Commissions,   and  Councils  of  Trade  and  Plantations,   1622- 

1675.     By  C.  M.  ANDREWS.     75  cents. 
IV-VI.  Neutral  Rights  and  Obligations  in  the  Anglo-Boer  War.    By  R.  G.   CAMPBELL. 

75  cents. 
VII-VIII.  The  Elizabethan  Parish  in  its  Ecclesiastical  and  Financial  Aspects.     By  S.  L. 

WARE.     50  cents. 
IX-X.  A  Study  of  the  Topography  and  Municipal  History  of  Praeneste.     By  R.  V.  D. 

•>  MAGOFFIN.     50  cents. 
XI-XII.  Beneficiary  Features  of  American  Trade  Unions.     By  J.  B.  KENNEDY.     50  cents. 

xi 


TWENTY-SEVENTH  SERIES.— 1909.— 13.50. 

I-II.  The  Self-Reconstruction  of  Maryland,  1864-1867.     By  W.  S.  MYEBS.     50  cents. 
III-IY-V.  The   Development    of   the    English   Law   of    Conspiracy.    By    J.    W.    BBYAM. 

75  cents. 
VI-VII.  Legislative    and    Judicial    History    of    the    Fifteenth    Amendment.     By    J.    M. 

MATHEWS.     75  cents ;  cloth  $1. 

VIII-XII.  England  and  the  French  Revolution,  1789-1797.     By  W.  T.  LAPRADE.     $1. 
TWENTY-EIGHTH  SERIES.— 1910.— $3.50. 

(Complete  in  four  numbers.) 
I.  History  of  Reconstruction  in  Louisiana   (Through  1868).     By  J.  R.  FICKLEN.     $1.00; 

cloth  $1.25. 

XI.  The  Trade  Union  Label.     By  E.  R.  SPEDDEN.     50  cents ;  cloth  75  cents. 
III.  The  Doctrine  of  Non-Suability  of  the  State  in  the  United  States.     By  E.   SINGB- 

WALD.     50  cents ;  cloth  75  cents. 

XV.  David  Ricardo:  A  Centenary  Estimate.       By  J.  H.  HOLLANDEB.     $1.00;  cloth  $1.25. 
TWENTY-NINTH  SERIES.— 1911.— $3.50. 
(Complete  in  three  numbers.) 

I.  Maryland  Under  the  Commonwealth:  A  Chronicle  of  the  years  1649-1658.     By  B.  C. 

STEINER.     $1 ;  cloth  $1.25. 

II.  The  Dutch  Republic  and  the  American  Revolution.     By  FRIEDRICH  EDLEB.     $1.50 ; 

cloth  $1.75. 

III.  The  Closed  Shop  in  American  Trade  Unions.     By  F.  T.  STOCKTON.    $1.00 ;  cloth  $1.25. 

THIRTIETH  SERIES.— 1912.— $3.50. 

(Complete  in  three  numbers.) 

I.  Eecent  Administration  in  Virginia.     By  F.  A.  MAGBUDEB.     $1.25;  cloth  $1.50. 
XI.  The   Standard  Rate   in   America   Trade   Unions.     By    D.   A.    McCABE.     $1.25 ;   cloth 

$1.50. 

in.  Admission  to  American  Trade  Unions.     By  F.  E.  WOLFE.     $1.00 ;  cloth  $1.25. 
THIRTY-FIRST    SERIES.— 1913.— $3.50. 
(Complete  In  four  numbers.) 

I.  The  Land  System  in  Maryland,  1720-1765.     By  CLARENCE  P.  GOULD.     75  cents;  cloth 

$1.00. 

II.  The  Government  of  American  Trade  Unions.     By  T.  W.  GLOCKBB.     $1.00 ;  cloth  $1.25. 

III.  The  Free  Negro  in  Virginia,  1619-1866.     By  J.  H.  RUSSELL,     $1.00;  cloth  $1.25. 
XV.  The  Quinquennales :  An  Historical  Study.     By  R.  V.  D.  MAGOFFIN.     60  cents;  cloth 

75  cents. 

THIRTY-SECOND  SERIES— 1914.— $3.50. 

(Complete  In  three  numbers.) 
X.  Jurisdiction    In    American    Building-Trades    Unions.    By    N.    R.    WHITNEY.     $1.00; 

cloth  $1.25. 

II.  Slavery  in  Missouri,  1804-1865.     By  H.  A.  TBEXLEB.     $1.25 ;  cloth  $1.50. 
ni.  Colonial  Trade  of  Maryland.     By  M.  S.  MORRISS.     $1.00 ;  cloth  $1.25. 
THIRTY-THIRD  SERIES.— 1915.— $3.50. 
(Complete  in  four  numbers.) 

I.  Money    and    Transportation    in    Maryland,    1720-1765.     By    CLARENCE    P.    GOULD.     75 

cents ;  cloth  $1.00. 

II.  The  Financial  Administration  of  the  Colony  of  Virginia.     By  PEBCY  SCOTT  FLIPPIN. 

50  cents ;  cloth  75  cents. 

III.  The   Helper   and  American  Trade   Unions.     By   JOHN   H.   ASHWOBTH.     75   cents ; 
cloth  $1.00. 

IV.  The  Constitutional  Doctrines  of  Justice  Harlan.     By  FLOYD  BABZILIA  CLARK.     $1.00 ; 
cloth   $1.25. 

THIRTY-FOURTH  SERIES.— 1916— $3.50. 
(Complete  In  four  numbers.) 

I.  The  Boycott  in  American  Trade  Unions.     By  LEO  WOLMAN.     $1.00 ;  cloth,  $1.25. 

II.  The  Postal  Power  of  Congress.     By  LINDSAY  ROGERS.     $1.00 ;  cloth,  $1.25. 

III.  The  Control  of  Strikes  in  American  Trade  Unions.     By   G.   M.   JANES.     75   cents ; 

cloth,  $1.00. 

IV.  State  Administration  in  Maryland.     By  JOHN  L.  DONALDSON.     $1.00 ;  cloth,  $1.25. 
The  set  of  thirty-four  series  of  Studies  is  offered,  uniformly  bound  in  cloth,  for  library 

use  for  $118.00  net.     The  separate  volumes  may  also  be  had  bound  in 
cloth  at  the  prices  stated. 

NOTES    SUPPLEMENTARY   TO    THE   STUDIES    IN    HISTORY 
AND  POLITICS. 

PRICE    OF   THESE    NOTES,    TEN    CENTS    NEXT    BACH,    UNLESS    OTHERWISE    STATED. 

Municipal  Government  in  England.     By  ALBBBT  SHAW. 

Social  work  la  Australia  and  London.     By  WILLIAM  GREY. 

Encouragement  of  Higher  Education.     By  H.  B.  ADAMS. 

The  Problem  of  City  Government.     By  SETH  Low. 

Work  Among  the  Working-women  of  Baltimore.     By  H.  B.  ADAMS. 

Charities:   The  Relation  of  the  State,  the  City,  and  the  Individual  to  Modem  Philan- 
thropic Work.     By  A.  G.  WAKNBB. 

Law  and  History.     By  WALTER  B.  SCAIFB. 

The  Needs  of  Self-Supporting  Women.     By  CLARE  DE  GRAFFENREID. 

Early  Presbyterianism  in  Maryland.     By  J.  W.  MclLVAiN. 

The  Educational  Aspect  of  the  U.  8.  National  Museum.     By  O.  T.  MASON. 

University  Extension  and  the  University  of  the  Future.    By  RICHARD  G.  MOULTON. 

The  Philosophy  of  Education.    By  WILLIAM  T.  HARRIS. 

Popular  Election  of  U.  8.  Senators.    By  JOHN  HAYNBS. 

A  Memorial  of  Lucius  8.  Merrlam.     By  J.  H.  HOLLANDEB  and  others. 

Is  History  Past  Politics  1     By  HERBERT  B.  ADAMS. 

Lay  Sermons.    By  AMOS  G.  WARNER;  with  a  biographical  sketch  by  GEORGE  B.  How  AID. 
Price  twenty-five  cents. 

xii 


DATE  DUE 


PRINTEDINU.S.A. 


<  REGIONAL  tg 


Q43     5 


